Buffalo Waterfront Corridor Initiative: A Strategic Plan for Transportation Improvements Waterfront Queen City

Byron W. Brown, MAYOR STATE DEPARTMENT UNITED STATES WWW.CITY-BUFFALO.COm OF TRANSPORTATION DEPARTMENT George E. Pataki, OF TRANSPORTATION OFFICE OF STRATEGIC PLANNING GOVERNOR FEDERAL HIGHWAY Timothy E. Wanamaker, Joseph Boardman, ADMINISTRATION EXECUTIVE DIRECTOR COMMISSIONER

DEPARTMENT OF PUBLIC WORKS, Final Report for the “Buffalo PARKS AND STREETS Joseph Giambra, Corridor Management Plan” COMMISSIONER (NYSDOT PIN 5756.29) April 2007

Queen City Waterfront Buffalo Waterfront Corridor Initiative: A Strategic Plan for Transportation Improvements

Byron W. Brown, MAYOR NEW YORK STATE DEPARTMENT UNITED STATES WWW.CITY-BUFFALO.COM OF TRANSPORTATION DEPARTMENT George E. Pataki, OF TRANSPORTATION OFFICE OF STRATEGIC PLANNING GOVERNOR FEDERAL HIGHWAY Timothy E. Wanamaker, Joseph Boardman, ADMINISTRATION EXECUTIVE DIRECTOR COMMISSIONER

DEPARTMENT OF PUBLIC WORKS, Final Report for the “Buffalo PARKS AND STREETS Joseph Giambra, Corridor Management Plan” COMMISSIONER (NYSDOT PIN 5756.29) April 2007 Queen City Waterfront Buffalo Waterfront Corridor Initiative: A Strategic Plan for Transportation Improvements

DEVELOPED UNDER THE DIRECTION OF

The City of Buffalo Office of Strategic Planning

AND

The City of Buffalo Department of Public Works

DEVELOPED WITH THE CONSULTING SUPPORT OF:

The prime contractor Wendel Duchscherer Architects and Engineers

AND

The Urban Design Project, State University of New York

WITH

Buffalo Niagara Riverkeeper (formerly Friends of the Buffalo )

VOLUME I: “QUEEN CITY WATERFRONT” PREPARED BY

The Urban Design Project School of Architecture and Planning University at Buffalo, State University of New York 3435 Main Street Buffalo, Buffalo, NY 14214 (716) 829-3485 ext 220 www.urbandesignproject.org

IN ASSOCIATION WITH

Wendel Duchscherer Architects and Engineers 140 John James Audubon Parkway, #201 Amherst, NY 14228 (716) 688-0766 www.wd-ae.com A Strategic Plan for Transportation Improvements

Table of Contents

Executive Summary ...... 1 A Community Vision: Recapturing Buffalo’s Waterfront ...... 4 The Approach ...... 8 Methods of Work ...... 8 The Planning Legacy ...... 8 Gateway Improvements Methodology ...... 12 Stakeholder and Public Participation ...... 13 Conclusion ...... 15 The Policy Framework: Local Waterfront Revitalization Program ...... 16 Background ...... 16 Benefits of an LWRP ...... 17 Policies ...... 17 Land Use by Sub-Area ...... 21 Achieving the Vision: Projects in the Buffalo Waterfront Corridor ...... 25 Elements of the Vision ...... 25 Transportation Connections ...... 30 Inner Harbor/Downtown ...... 34

Waterfront Outer Harbor/South Buffalo ...... 38 Buffalo River ...... 43 Gateway/West Side ...... 47 Black Rock/Riverside/Scajaquada ...... 54 Peace Bridge Gateway Improvement ...... 60 A Great Neighborhood and Grand Gateway for Buffalo ...... 60 Interim Plaza and Neighborhood Improvement Plan ...... 62 Long Term Plaza and Neighborhood Improvement Alternatives ...... 68 Shared Border Management Alternative ...... 68 South Plaza Alternative ...... 70 North Plaza Alternative ...... 73 Evaluation of Alternatives ...... 75 Conclusion: Shared Border Management ...... 80 Next Steps ...... 81 Queen City Waterfront Gateway Nodes: Analysis, Design Guidelines and Proposals ...... 83 Introduction ...... 83 Porter Avenue: Guidelines and Concept Proposals ...... 87 Erie Street: Guidelines and Concept Proposals ...... 93 Secondary Nodes ...... 98 Scajaquada/Niagara Street ...... 98 Virginia/Carolina Interchange ...... 98 Summary ...... 99 Implementation ...... 100 Introduction ...... 100 Setting Priorities ...... 100 Next Steps ...... 101 Conclusion ...... 102

Table of Contents III Queen City Waterfront

Appendices

A Bibliography of Plans B Participation History (Electronic) Newsletters Agency Meetings Workshops and Public Meetings Node Meetings Brochure

Companion Volumes:

Vol. 2 Waterfront Planning Inventory and Analysis Introduction and Explanation

Part 1: Analysis of Project Goals Part 2: Preliminary Project Assessment Part 3: Project Site Abstracts Part 4: Bibliography of Plans

Vol. 3 City of Buffalo Local Waterfront Revitalization Program

Vol. 4 International Waterfront Gateway Neighborhood Improvement Program Part 1: Interim Plaza Part 2: Long Term Plaza Proposals Shared Border Management South Plaza North Plaza

Vol. 5 Waterfront Gateway Node Description, Analysis and Design Guidelines Introduction Primary Nodes Porter Avenue: Analysis, Guidelines and Concept Proposals Erie Street: Analysis, Guidelines and Concept Proposals Secondary Nodes Scajaquada/Niagara: Analysis and Issues Virginia/Carolina: Analysis and Issues

Vol. 6 Expanded Project Proposal – Erie Street Vol. 7 Expanded Project Proposal – Porter Avenue

IV Table of Contents A Strategic Plan for Transportation Improvements

Acknowledgements

Wendel Duchscherer, Architects and Engineers served as the prime contractor to the City of Buffalo for the NYSDOT Buffalo Corridor Management Plan and its related implementation campaign known locally as the Waterfront Corridor Initiative. They were lead consultant on the following report volumes in association with the Urban Design Project and the Buffalo Niagara Riverkeeper:

Volume 3: Local Waterfront Revitalization Program Volume 6: Expanded Project Proposal – Erie Street Volume 7: Expanded Project Proposal – Porter Avenue

The Urban Design Project was lead consultant on the following report volumes in association with the Buffalo Niagara Riverkeeper and Wendel Duchscherer:

Volume 1: Queen City Waterfront Volume 2: Waterfront Planning Inventory and Analysis Volume 4: International Waterfront Gateway Neighborhood Improvement Program Volume 5: Waterfront Gateway Node Description, Analysis, and Design Guidelines

Additional consulting support is acknowledged in each volume of the final report on the Buffalo Corridor Management Project (NYSDOT Pin 5756.29).

All graphics in Volume 1 that are not specifically credited are produced by the Urban Design Project.

Acknowledgements V Queen City Waterfront

Executive Summary

OUTER HARBOR / SOUTH BUFFALO BUFFALO RIVER INNER HARBOR / DOWNTOWN

economic development | environmental quality | public access | international gateway | efficient transportation | connected neighborhoods

Citizens’ vision of the waterfront shows a continuous greenway with tree-lined streets connecting the waterfront to the Olmsted Park and Parkway System and adjacent neighborhoods.

The Queen City Waterfront plan is based on a citizens active in planning, and dozens and clear and simple vision that Buffalo, once a dozens of durable proposals for action to waterfront city, will be a waterfront city once improve our waterfronts developed over the again. As a community, Buffalo is committed past thirty years. The vision is grounded in a to making its waterfronts more accessible methodical assessment of three important and environmentally healthy, to reconnecting bodies of work: what we have done; plans neighborhoods to our waterfronts and we have made; and policies we have set. getting best possible economic use from For the first time in three decades, them, and to improving the efficiency of our community aspirations for healthier, more waterfront transportation corridor and prosperous and more accessible waterfronts making sure it serves all our other goals. are supported by a draft Comprehensive Plan This plan is based on a great legacy of over for Buffalo, Queen City in the 21st Century, 120 plans on over eighty sites, all aimed at in its final stages of review and approval. achieving the great potential of our Even more importantly, they are supported by waterfronts. It incorporates detailed analytical a proposed City of Buffalo Local Waterfront and creative effort, the work of thousands of Revitalization Program (Volume 3), also under

2 Executive Summary A Strategic Plan for Transportation Improvements

GATEWAY / WEST SIDE BLACK ROCK / SCAJAQUADA RIVERSIDE

final review. The foundation for the City of reinforcing the LWRP policies. It contains an Buffalo Local Waterfront Revitalization enumeration of the projects both from our Program (LWRP) was established, in part, by legacy of plans and out of current work that the inventory of projects (analyzed in Volume can help us move toward achieving our 2) influencing the strategic plan for shared waterfront vision. The projects are transportation improvements, as well as by the organized by four categories: recent comprehensive engagement of citizens, achievements, emerging projects, projects agencies, and other stakeholders. The robust that need a push, and longer term visions. legal framework of the LWRP can carry the The vision for the waterfront is embodied in hopes and dreams of Buffalonians for the the full range of projects. transformation of its waterfront lands in This report also contains more detailed work concert with the transportation infrastructure. on key nodes not already strongly addressed The NYSDOT Buffalo Corridor Management in current planning reports. Proposals for the Plan, known as the Queen City Waterfront improvement of our International Gateway was developed with the LWRP as a Neighborhood Improvement Program (Volume complementary implementation guide 4) were developed, addressing both interim

Executive Summary 3 Queen City Waterfront

infrastructure and neighborhood improvements as well as presenting the long range vision for this important international gateway. Volume 5 includes a description and analysis of four other sites: Erie Street and Porter Avenue as primary nodes also have accompanying design guidelines, and the Virginia/Carolina/Niagara intersection and the Niagara Street/Scajaquada area as secondary nodes. Expanded Project Proposals volumes were developed for the primary nodes. The Expanded Project Proposal volumes offer alternatives to establish Erie Street (Volume 6) as a primary physical and visual connection between downtown and the waterfront and to transform Porter Avenue (Volume 7) as part of the Olmsted Park and Parkway system from Niagara Street down to the water’s edge. The Erie Street reclamation is seen as a part of the “Great Streets” program of the

Projects identified in the inventory to be integrated into the Buffalo Corridor Management Project: Queen City Waterfront.

An aerial view of the Buffalo Waterfront that follows the skyway across the Buffalo River. (Source: City of Buffalo)

4 Executive Summary A Strategic Plan for Transportation Improvements

this plan outlined by the LWRP and articulated by citizens over the last thirty years. Because we know we cannot do everything all at once, we know we must finish what we have already started, build on the strength of past patterns of successful development, and make new changes visible to the public. We also know that we cannot afford to spend all of our resources in one place, and must focus our efforts strategically. Finally, this plan suggests a framework for accounting for the implementation of priority projects selected by the community. We have built this strategy with an interagency group led by the City of Buffalo that includes local, regional, state, and federal participants who

The transportation projects identified and evaluated in the are responsible for regulating and project inventory. implementing the projects. The current multi- agency cooperation on waterfront implementation includes a process of Queen City Hub: A Regional Action Plan for information sharing, coordination, problem Downtown Buffalo, which was published in solving, and mutual accountability for 2004 as part of the program of work promised progress. It also builds on the implementing the city’s comprehensive plan. activities of non-governmental organizations like Buffalo Place, Inc. on waterfront issues Achieving the full potential of Buffalo’s related to Downtown, and the Greater waterfronts is dependent on the quality of Buffalo Niagara Partnership’s Waterfront the transportation connections from the Action Program for a more regional reach on neighborhoods to the water, such as an waterfront development. integrated Peace Bridge Plaza, Porter Avenue and Erie Street. It is also dependent on the Buffalonians know what they want for their reduction of negative impacts on waterfront waterfronts. They have expressed it time and access and development created by Interstate time again. The Queen City Waterfront 190, Route 5 “Skyway,” the west side rail expresses these aspirations through vision, corridor, and Fuhrmann Boulevard, all being policy, projects, designs, and a framework for addressed as projects at very different stages setting priorities and managing of planning. implementation. Following this strategic plan for transportation improvements, Buffalo will The Queen City Waterfront Strategic be a waterfront city again. Transportation Plan also presents a simple but powerful way for us to organize and act on our priorities for Buffalo’s waterfront corridor. We must always hew to the core values of

Executive Summary 5 Queen City Waterfront

A Community Vision: Recapturing Buffalo’s Waterfront

People who live in waterfront neighborhoods – Riverside, Black Rock, the West Side, Lower West Side, Waterfront Village, and the Old First Ward, the Valley, and South Buffalo – want the places where they live to be better connected to the waterfront. Buffalonians want the waterfronts to be a great international gateway. All of the public interest in a new Peace Bridge testifies to that. But the waterfront has several additional gateways to Buffalo – along Niagara Street in Riverside, from the south along the Outer Harbor, in Downtown, as well as on Porter Avenue near the Peace Bridge.

The mouth of the Buffalo River circa 1853 illustrating its status as a great intermodal We all want the quality of the environment center. (Source: Courtesy of Henry Baxter) along Buffalo’s waterfronts to improve. This includes the quality and character of lands along the waterfront as much as it means the Buffalo emerged from its waterfront purity of the water itself so that it is safe to and it is determined to return. swim and fish. When we arrive at the water- This is the simple, powerful, and front we want it to be safe and wholesome. incontrovertible fact that informs everything People want the waterfronts to contribute to we as a community do about our waterfronts. the greater prosperity of the City. It always It is the foundation beneath any plan we has. But while its economic role in the past might make. It is the inspiration running was in commerce and industry, in the future through any vision we have for the future it will be in recreation, tourism, and amenities of our waterfronts. for living. There is also room for water- Ordinarily, an action program would start dependent industrial and commercial devel- with a planning process, and a planning opment consistent with the waterfront’s process would start with talking about a other values. vision. That’s not necessary for Buffalo’s waterfront now. We have already done that part. We have had the conversation – over and over again. We have made plans on top of plans. The vision is clear. It is time to act.

The elements of the vision are clear. People want access to the waterfront. They want to see it, touch it, smell it and hear it. They want to put their boat or their fishing line in it. They want to jump in and swim. Residents want these things. So do all of our visitors. People enjoying the waterfront at .

6 A Community Vision: Recapturing Buffalo’s Waterfront A Strategic Plan for Transportation Improvements

Finally, the waterfront is a vital corridor for Where did the vision come from? local, regional, national, and international How do we know that this is Buffalo’s transportation with all of the economic value community vision for its waterfront? Just that provides. Buffalonians want to improve ask your friends about what they want for those functions while protecting all of the our waterfront. Ask your neighbors. Read other important values of the waterfront. in the paper what people have to say. Listen Transportation efficiency is an essential ingre- to our elected officials. They will talk about dient to the success of the waterfront even as this vision. it has been defined by the citizens as the single greatest obstacle to a better relationship But this is not a vision based on hearsay. between the city and the waters of the The vision described here is grounded in a Buffalo River, Lake Erie, and the Niagara River. methodical assessment of three important Achieving the full potential of the waterfront bodies of work: what we have done; plans in Buffalo is dependent on the quality of the we have made; and policies we have set. transportation connections from the neigh- As a community, we have been expressing a borhoods to the water and the reduction of clear, consistent, and powerful vision for our negative impacts on waterfront access of waterfront for decades. Every chance we Interstate 190, Route 5 “Skyway,” the west have had to speak about the future of the side rail corridor, and Fuhrmann Boulevard. waterfront, we talked about this vision. Every time we organized ourselves to act, we mani- It’s a beautiful, active, public waterfront. fested this vision. By now, the vision is too obvious to be denied. Altogether, the community has a vision of a waterfront that is the beautiful, active, public The geography of the vision encompasses a edge of our City, continuously accessible from larger land area than the Local Waterfront Riverside Park to Gallagher Beach and inland Revitalization Program in order to accommo- along the Buffalo River and Scajaquada date the connection of the neighborhoods Creek. It is a vision of a city in which residents throughout the City to its waterfronts. By go down to enjoy the water as a part of daily identifying key developments in this larger life, and whose neighborhoods are better off area, some of which are not explicitly for being there. waterfront, we are able to illustrate the interconnection of commercial and cultural It is a vision of a waterfront in which visitors life with the points of waterfront access arrive and immediately see and understand and development potential, and to better what is so special about this place. It is a discuss the role of transportation corridors vision of a waterfront that is a safe and connecting such life to the water. healthy place to visit. It is a vision of a waterfront that is an The vision is already partly fulfilled. important part of our economy, providing an impetus for new development while we There is an extraordinary array of projects protect what is most valuable about it. that have actually been done over the past quarter century, and there are many more It is a vision of connections between our happening now. It is not very difficult to City and the world, but also between the extrapolate from the positive changes we City and the waterfronts, braided carefully have already made to a vision for the future to accommodate the needs of transportation changes we still want to make. and safeguard the precious resources of the waterfront.

A Community Vision: Recapturing Buffalo’s Waterfront 7 Queen City Waterfront

We have a great legacy of planning on which to draw. There has been a massive amount of waterfront planning conducted over the past several decades. It is true that the ratio of planning to action has been too high. But the library of plans we have reviewed – 120 in all – is eloquent testimony to what Buffalonians have said – over and over again – about what they want on their waterfront. These plans clearly demand the completion of a continuous and uninterrupted waterfront path from City line to City line, including Scajaquada Creek to Delaware Park, and the Buffalo River all the way to the West Seneca

The boardwalk at Gallagher Beach State Park. border and Cazenovia Park. Likewise, they seek the restoration of the city’s parks, espe- cially the Olmsted waterfront parks, Riverside, The Riverwalk, Scajaquada Path, and Buffalo The Front, and South Park, along with LaSalle River Greenway, while not totally complete, Park and the establishment of a new State have already fulfilled some of the public Park on the Outer Harbor. aspiration for direct access to the waterfronts. So have the Erie Basin Marina, the Small Boat The planning legacy, likewise, envisions Harbor, Gallagher Beach, and the Ontario continuing work to improve housing, Street boat launch. revitalize commercial districts, and make new direct links between neighborhoods and the A variety of public efforts have improved waterfront. The plans also speak of new water quality in Lake Erie, cleaned up Hoyt waterfront neighborhoods on the Outer Lake in Delaware Park, and addressed the Harbor and elsewhere. problem of contaminants in the Buffalo River. Damaged lands have been repaired on There must be continuing work to clean up Squaw Island and the Outer Harbor, and the Buffalo River through implementation still-wild lands preserved at Tifft Farm, of the Remedial Action Plan. Further work Seneca Bluffs, and Old Bailey Woods. is necessary to clean up spoiled lands on the Outer Harbor and elsewhere. And the Ongoing redevelopment of old industrial consolidation of the Buffalo River reserve lands on the Union Ship Canal and in the suggested by Old Bailey Woods, Seneca Tonawanda Corridor speak to our need to Bluffs, and Ogden Estates should be pursued. grow our economy in ways that protect our most valuable waterfront lands. Work The vision demands that we continue work on the Harbor exemplifies the on plans to redevelop old industrial lands, ways we can redevelop our waterfront for where appropriate, for continued industrial new economy sectors in recreation, tourism, use, such as the South Buffalo and heritage. Redevelopment area. We can foresee new development along Niagara Street that will be appropriate to that waterfront location. Certainly the development of tourist oriented attractions at the Erie Canal Harbor, Outer Harbor, Broderick Park, and elsewhere are faithful to the vision.

8 A Community Vision: Recapturing Buffalo’s Waterfront A Strategic Plan for Transportation Improvements

The plans share the vision for a great Peace It is time to take our waterfront back. Bridge gateway – not just a wonderful It is often said that nothing has been accom- bridge, but a great park and entrance to our plished to create the waterfront we all want. City. There are other gateways to consider as The frustration that people feel is certainly well, in the web of connections in Black Rock understandable. There is much still to be to the north, and at the entrance to done. But it is simply not true that we have Downtown from the south. made no progress. There is much to cele- Finally, the plans express the vision that brate: cleaner water, expanded access, and transportation infrastructure must move the beginnings of responsible efforts to take people and goods, but also make the economic advantage of our waterfront waterfront more accessible and protect resources. We should celebrate. waterfront values. Work on a new Likewise, it has long been popular to read Southtowns Connector proceeds in this that many “plans are gathering dust on a spirit. Proposals as big as replacing the shelf” and to present this as evidence of our Skyway and as small as building a new own incompetence, inertia, and failure. That pedestrian bridge at Riverside Park are all also is inaccurate. A much more positive – embodied in this vision. and more useful – interpretation is possible. This surfeit of plans reflects our collective The vision is expressed persistence in expressing community desires in emerging policy. that would build on what has already been done. Our collective vision for the waterfront is also visible in the emerging body of official Finally, there are some who would like to City policy and the evolving legal framework say we lack a vision for the waterfront. Yet, for planning in Buffalo. The Buffalo Buffalonians have repeatedly spoken, written, Comprehensive Plan, The Queen City in the and drawn their vision for the waterfront. 21st Century, is the master legal document We have done it in many different venues, for planning in Buffalo and it puts great and in many different ways. We have even emphasis on the role of the waterfront in built several elements of the vision, and there our City’s revival and codifies all of the values is no confusion about the essential meaning expressed above. of our vision. Buffalonians want our water- The Queen City Hub is a plan for front back from the non-waterfront uses, downtown Buffalo that places the center The Queen City Hub: A Regional Action Plan of the city in the context of the region. pollution, and transportation infrastructure for Downtown Buffalo makes the waterfront decisions that currently deny us access. one of three organizing principles for contin- uing redevelopment of Downtown, along The Queen City Waterfront represents a with the Ellicott radial and grid street plans tested approach to organizing for action. It and the Olmsted parks and parkway system. requires translating our clear vision and well- Without the elaboration of new connections developed plans into immediate community between Downtown and the waterfront, nei- priorities for implementation. Then it asks all ther Downtown nor the waterfront can reach of those who have the power to get projects their fullest potential. done to work together, solve problems, and hold each other accountable. If we do this, Finally, the draft City of Buffalo Local we will get our waterfronts back. Waterfront Revitalization Program (LWRP) will tailor New York State Coastal Zone Management policies for waterfront protection and development for specific application in Buffalo. Once adopted, these will be City law governing Buffalo’s entire waterfront. Both the LWRP and the downtown plan are incorporated in the new Buffalo Comprehensive Plan.

A Community Vision: Recapturing Buffalo’s Waterfront 9 Queen City Waterfront

the approach

Methods of Work The Planning Legacy The Queen City Waterfront (Buffalo Corridor The Queen City Waterfront’s strategic plan Management Plan) was a complex and for transportation improvements, represents diverse planning effort that included many an unconventional approach to planning. A tasks, from environmental analysis to the more conventional method would involve an management of agency participation. For orderly process, moving from visioning and each task, the project team developed an goal setting, to project identification and approach to best accomplish the objectives. alternatives evaluation, to programming and In some instances, such as the work required implementation. A less conventional for the Expaned Project Proposals (EPPs) and approach is required because Buffalo has nodal analyses, we employed traditional already done most of that work. We don’t transportation and environmental planning need to start over again; we need to affirm methods to describe, analyze and develop what has been done, fill in the pieces and alternative proposals. Yet other tasks, such as carry it forward. the planning legacy, used an archival method- The current plan is the product of the ology, and in the case of the Peace Bridge, we Waterfront Corridor Initiative (WCI) an effort employed interactive computer technology to integrate past planning work, emerging along with intense design charettes to policy development, and ongoing project respond appropriately to the questions implementation within the framework of a poised. There is a more elaborate description coherent vision, accompanying goals, and of the methods of these two tasks below. priorities for action. The plan incorporates a The diverse approach taken to this plan also careful analysis of more than 120 planning recognized the need to involve members documents containing nearly 700 individual of the public – residents, community project proposals. It integrates policy content organizations, public agencies, businesses, from The City of Buffalo’s Local Waterfront not-for-profits, and other stakeholders – in Revitalization Program, The Queen City Hub: a continuous process of participation. This A Regional Action Plan for Downtown has included opportunities for citizens to Buffalo, and The Queen City in the 21st learn about the work in progress, to discuss Century: Buffalo’s Comprehensive Plan. It also the vision and goals of waterfront planning, includes ongoing work on projects that have and to review and comment on emerging already been approved and funded. proposals. These efforts have included a series of large-scale public meetings, meetings of agency representatives, special sessions with stakeholder groups and individuals, publication of a regular newsletter, and updated web-postings. A more detailed summary of these activities follows.

10 The Approach A Strategic Plan for Transportation Improvements

The analysis of planning documents pro- • Transportation facilities have been duced for Buffalo’s waterfront over the improved with projects like the removal past quarter century suggests a number of the Father Baker Bridge. of important conclusions: • Phase I of Erie Canal Harbor was • Many of the community’s aspirations complete in 2003. Phase I includes for the waterfront have already been $15.5 million in improvements, achieved or will be achieved in the including Veterans Park, relocating and near future, and there is a strong repairs to the three naval vessels, and constituency for further action. construction of the new Naval Basin. • The community vision and goals for the waterfront are clear, coherent, and consistent based on thorough and continuing citizen participation, the manifest values of plans and projects, and explicit public policy language. • There are a large number of viable projects, ready to go or nearly so, that can tangibly advance the cause of waterfront transformation.

Recent Achievements Bird Island Pier remains one of the most successful waterfront projects in the city. A careful accounting of completed projects contradicts the common complaint that “nothing is getting done” on the waterfront. Over the course of the 1970s, 1980s, and 1990s, many important accomplishments have been made on the waterfront: • Water quality in Lake Erie, the Buffalo River, Scajaquada Creek, and Hoyt Lake has been improved. • Public access has been expanded along the Riverwalk and the Scajaquada Creek Pathway and at Erie Basin Marina, Gallagher Beach, was saved as a wildlife reserve in the 1970s. Broderick Park, Bird Island Pier, Smith Street, Squaw Island, Ontario Street, and Towpath Park. • Natural habitats have been preserved at Tifft Farm, Smith Street, Old Bailey Woods, and Seneca Bluffs. • Access for boaters has been expanded at the Small Boat Harbor, Erie Basin Marina, and the Ohio Street boat launch.

The Small Boat Harbor on Lake Erie represents a success story for recreational uses of the waterfront.

The Approach 11 Queen City Waterfront

Just as importantly, work on Buffalo’s Further testimony to the consistent and waterfront has generated a powerful long-standing support for these goals is the record of citizen participation and a growing fact that all of the projects reviewed here organized waterfront constituency. The support at least one, if not more, of the Buffalo Waterfront Master Plan, the Horizons goals outlined. Our review of projects in Waterfront Plan, the Local Waterfront eighty-eight waterfront sites revealed that: Revitalization Program, and many other • Seventy-two projects provide public efforts have created a clear record of public access to the City’s waterfront demand for a better waterfront. resources; Likewise, the growth of citizen advocacy • Sixty-seven projects support groups including the Buffalo Niagara economic development goals; Riverkeeper, Southtowns Walleye Association, the North District Waterfront Advisory • Fifty-six projects revitalize the Committee, the League of Women Voters, City’s neighborhoods, connecting the Common Council Waterfront Task Force, them to the waterfront; the Buffalo Development Council’s • Forty-three projects protect and Waterfront Action Program, the LaSalle Park repair the ecological health of the Steering Committee, and many others contin- waterfront areas; ue to contribute to the process of defining a community waterfront vision. • Ten projects celebrate the City’s position as an International Gateway; and Vision, Goals and Policy • Fifty-five projects relate to There is a powerful alignment within the the management of waterfront waterfront vision as expressed in public transportation. discussion over many years, as explicitly stated in official City policy, and in the intent Further documentation on these points is of active projects for Buffalo’s waterfronts. available in the following section of this An analysis of this diverse body of evidence report, in the summary of projects and sites shows a strong convergence around six below, and in the appendices of this plan. fundamental goals for continuing develop- ment of the Buffalo waterfront: Projects and Proposals • Develop the economic strength of As noted above, more than 120 different neighborhoods, the community, and planning and project documents were gath- the region; ered from government agencies, public and • Extend direct access to our waterfront university libraries, organizations, individuals, from Riverside to South Buffalo and and elsewhere. Any document, from the everywhere in between; most thorough comprehensive plan to the most rudimentary project proposal, has been • Revitalize our waterfront neighbor- included as long as it has dealt with ideas for hoods and connect them to the water; change in the geography of the Buffalo • Protect and repair the health of our waterfront. water, land, and wildlife along the waterfront; • Create a magnificent International Gateway at and around the Peace Bridge; and • Manage waterfront transportation resources to support these goals.

12 The Approach A Strategic Plan for Transportation Improvements

These documents were reviewed, one by one, with an eye toward identifying every discrete project proposal put forward in them. Some of the documents produced only one project proposal. Others, typically the broad-scale master plans, produced dozens of proposals. In all, nearly 700 project proposals have been listed, including many projects that have been proposed repeatedly in different documents. To make this review more manageable, these proposals were organized first by project site and then by regions of the city. There were a total of eighty-eight individual sites considered in the review organized in five regions and “transportation connections.” These include: • Transportation Connections • Inner Harbor/Downtown • Outer Harbor/South Buffalo • Buffalo River • Gateway/West Side Five sub-areas were created to facilitate the planning of the • Riverside/Black Rock/Scajaquada waterfront in addition to the overall Transportation planning. For each site, the project team prepared an abstract summarizing the documented plans and project proposals. Each abstract (see Based on the information collected in each Volume 2: Project Site Abstracts) includes a abstract, each dominant concept proposed discussion of the dominant and alternate was assessed in terms of: concepts proposed for each site; a comment about how the dominant concept serves • consistency of project goals with the City goals and policies; a brief description of overall City policy; public outreach and community support for • evidence of public involvement and each proposal; a listing of public agencies support; relevant to the project; an assessment of overall project feasibility; a description of the • evidence of agency involvement level of concept development for the and support; proposal; and a note on any additional • general assessment of overall factors that may deserve consideration. feasibility; and • level of technical documentation.

The Approach 13 Queen City Waterfront

Based on an assessment of all five factors, Peace Bridge Gateway each project was given a provisional ranking of “A” through “D.” (See Volume 2: Improvements Waterfront Planning Inventory and Analysis Methodology for complete analysis). This assessment is different from a priority ranking, which would This plan involved the formulation of a attempt to determine the relative importance vision for Buffalo’s international gateway of each project, because this exercise is at the Peace Bridge. The proposed Peace intended to assess the general readiness of Bridge and landing have been the subject each project proposal. The assessment of of intense public debate in the city. These readiness continues to require careful debates, however, have been conducted in technical review by agency staff and others. the absence of any physical representations of what the various proposals might The four categories of readiness are: actually look on the ground and how they Recent achievements – projects that are would impact the neighboring parks and complete or already under construction. communities. Current work – projects that are moving After years of contention about the form forward with clear sponsorship, funding, and and style of the proposed bridge, the City of support. Buffalo did have a vision for the neighbor- hoods abutting the bridge and plaza that Emerging projects – projects that are would assure a grand gateway into the city, consistent with vision and goals and are restore park land, protect neighboring prop- otherwise well-developed, but may need erty from the negative effects of bridge and assistance in terms of funding, technical plaza traffic, and provide economic as well as development, public consensus formation, community development of the areas sur- problem solving or otherwise. rounding the plaza and Front Park. The Long term work – projects that are consis- implementation of this vision was, to a large tent with vision and goals, but which will extent, dependent on the decision between require longer term work. the United States and Canada as to whether or not there would be a shared border man- Projects that have been proposed but are not agement strategy. If this agreement could not consistent with vision, goals or policy were be reached, then there would have to be not included. A listing of projects by category duplicate customs processes on both sides of and a brief description of each project follows the border with the consequential use of in this volume in the section, “Achieving the more land. Vision.” The Waterfront Corridor Initiative (WCI) proj- ect team was requested to develop conceptu- al designs for the three major alternatives – the South Plaza, the North Plaza, and the Shared Border Management Plaza, as well as to prepare a critique and alternatives to the Peace Bridge Authority’s proposal for interim improvements. This work had a very tight timeframe from the City’s perspective; they made their request in April 2004 and request- ed the alternatives within three months. This obviously influenced the methods of work.

14 The Approach A Strategic Plan for Transportation Improvements

Since 1996, Mayor had Stakeholder and consistently argued for shared border 1 management to minimize the footprint of Public Participation the plaza and to improve the efficiency and As useful as the analysis of the planning the security of the border crossing. Yet, in legacy has been for framing the community’s the spring of 2004, there was still no shared waterfront vision, setting goals, and evaluat- border accord. A design inquiry into the ing the merits of individual projects, ongoing implications of all the proposals was needed and current participation by a wide range of in order to argue for a shared border resolu- stakeholders has also been vital to the Buffalo tion given the uncertainty of the political Waterfront Corridor Initiative. The analysis of context in 2004. planning documents has provided a great The team employed an intense urban design deal of information about citizen aspirations charette format to test alternatives. On May over the course of several decades. Still, it has 11 and 12, 2004, a diverse team of profes- been necessary to involve stakeholders and sional landscape architects, planners, trans- citizens in general in the continuing conversa- portation engineers and city officials met to tion about matters both general and specific. make major planning and design decisions Toward that end, this project has included a within the two-day window. These decisions wide range of participatory processes and were later be flushed out and developed by events which are summarized below. (More the project team. The charette was held at details are available in Electronic Appendix D the University at Buffalo’s Center for with this volume.) The goals of the participa- The Peace Bridge Plaza and Neighborhood Computational Research (CCR) where interac- tion component were: visions were initially developed during tive computer technologies enabled us to intense charettes. develop proposals, to overlay them to scale 1. To inform the public of the successes over existing maps, and to “fly over” these and challenges of Buffalo waterfront areas to actually see the consequences of development over the last twenty years – various actions. Comparisons could be made outlining projects completed, ready to quickly between the various alternatives be done, and long range; and different design strategies could be 2. To facilitate inter-agency communication evaluated. regarding current planning and design This task was completed by June 2004 and efforts, and working toward implementation; was instrumental in convincing many stake- 3. To set priorities for short term and long holders in the City of Buffalo and Erie County term transportation and economic develop- of the appropriateness and benefits of the ment projects on the waterfront; and shared border strategy. When an agreement to proceed with shared border was 4. To gather input and comment regarding announced by the U.S. and Canadian agency and stakeholder interests in governments in 2004, Buffalo was already upcoming projects. underway in planning both the interim Elements of the participation process and long term changes to its waterfront included open public meetings, coordination international gateway. and policy review meetings involving personnel from multiple agencies involved in waterfront work, targeted meetings, focus groups and interviews with stakeholders in waterfront nodes, newsletters, and web postings. 1 The public participation outlined in this volume includes all of the work done specifically under contract for the Buffalo Corridor Waterfront Initiative. However, this outline does not reflect the thousands of hours of public review about waterfront issues: it does not include the series of public meetings and review cycles of material that were a part of the 120 planning documents produced by the various agencies responsible for the regulation, development and implementation of any of the historic plans and projects.

The Approach 15 Queen City Waterfront

Major Conferences and Public Events • Interagency Coordination Meeting, March 8, 2004 at , • “State of the Waters” conference, presenting updates of LWRP and WCI April 6, 2002 at the Buffalo including emerging EPPs for Porter Convention Center, providing a kick-off Avenue and Erie Street. Attendance: for the Waterfront Corridor Initiative, a 40. report on recent work and upcoming challenges, and displays of ongoing • Buffalo Waterfront Projects Update projects. Attendance: 150. meeting, November 19, 2004 at Buffalo City Hall, including updates by • “Buffalo Waterfront Conference,” May WCI and LWRP teams to multi-agency 17, 2003 at The Pier, including presen- audience and presentations by other tations by area public officials, lessons agencies on various projects. from waterfront planning in Louisville, Attendance: 47. Kentucky, and an interactive workshop to help prioritize elements of the emerg- • Buffalo Waterfront Projects Update ing waterfront plan and the identifica- meeting, June 20, 2005 in the Erie tion of key nodes. Attendance: 150. County Industrial Development Agency board room, providing an update on • “Buffalo Waterfront Workshop,” seventeen key projects on the Outer May 15, 2004 at the Buffalo and Erie Harbor and Inner Harbor by multiple County Historical Society, to present agencies and an overview of the full Over 150 people actively participated in the the draft Local Waterfront May 2003 "Buffalo Waterfront Conference. seven volumes of the Queen City Revitalization Program for review and Waterfront. Attendance: 41. comment, offer Erie Street and Porter Avenue design guide and Expanded Project Proposals for review, present Meetings, Focus Groups and Interviews the draft strategic plan for transporta- for “Gateway Node” Proposal tion improvements, and review ongo- Development ing work on current projects. • Erie Street gateway node stakeholder Attendance: 75. interviews, March and April 2004. More than ten interviews with key Inter-Agency Meetings for Coordination stakeholders and property owners and Policy Review along the Erie Street corridor. • Interagency review of LWRP process, • Erie Street proposal review meeting, proposals and policies, January 17, April 29, 2004 at Buffalo Place Inc., 2002 at the Buffalo Yacht Club, to receive comment on urban design including participation by public analysis and proposed guidelines. agencies and community organizations. Attendance: 12. Attendance: 40. • Porter Avenue preliminary meeting • Interagency Coordination Meeting, with West Side Community January 7, 2004 at Buffalo City Hall, Collaborative, April 2004 at Niagara presenting plans and designs from both Branch Library, to organize for broader LWRP and WCI to impacted participation. Attendance: 6. agencies and stakeholder groups • Porter Avenue neighborhood meeting, and initiating coordination process. May 11, 2004 at First Presbyterian Attendance: 50. Church, to present and discuss pro- posed design guidelines for Porter Avenue. Attendance: 10.

16 The Approach A Strategic Plan for Transportation Improvements

• Porter Avenue meeting with Buffalo Conclusion Olmsted Parks Conservancy advisory committee, May 2004 at Parkside In an era of diminished public resources Lodge, to present and discuss proposed and growing disenchantment with planning design guidelines for Porter Avenue. processes, starting from scratch with each Attendance: 20. new planning effort is a luxury that we cannot afford. The Buffalo Corridor • Porter Avenue property owners Management Project has demonstrated meeting, June 9, 2004 at Chief Petty an alternative to conventional planning Officers’ Club, Porter Avenue, to approaches. present and discuss proposed design guidelines for Porter Avenue. The work has taken advantage of both the Attendance: 20. technical analyses and the participatory work that went into past plans, and reconstituted this legacy through continuing agency review Buffalo Waterfront Corridor and public participation. The approach under- Initiative Newsletters stands this plan not as a new attempt to • Spring 2003, Vol. 1, Issue 1: succeed where others have failed, but as a Introduction of the WCI project, review continuation and an upgrade of an iterative of LWRP work ahead and review of key and interconnected process of planning, projects from the planning inventory. action, and evaluation leading to revised plans as well as strategic project implementation. • Summer 2003, Vol. 1, Issue 2: A review of the results of the May 2003 “State By building this plan on the foundation of of the Waters” conference. more than a quarter century of concerted planning efforts for Buffalo’s waterfronts, • Spring 2004, Vol. 2, Issue 1: we have anchored it to the long term and Announcing May “Buffalo Waterfront deeply-felt aspirations of the community. Workshop” and presenting an update At the same time, this project has worked of work on the LWRP. hard to renew the vision, goals, and project In addition, information about the Waterfront priorities of the community through Corridor Initiative, the Local Waterfront conscientious public participation. Finally, Revitalization Program, and ongoing water- the plan uses the transportation corridor as front project work was posted to the City of its basic unit of analysis, explicitly recognizing Buffalo waterfront website available at the the strengths and limitations of present link: www.city-buffalo.com. corridor management and the array of projects required to better balance the The WCI and LWRP were often presented to transportation needs of the region and the public and discussed jointly at agency community with local waterfront revitalization. meetings. The two efforts are intimately con- nected through a shared geography and also through their complementary roles: the Local Waterfront Revitalization Program represents policy and regulation, and the WCI frames projects and an implementation strategies. Therefore, when appropriate, meetings were coordinated with the LWRP planning efforts to reflect the relationship between the emerging policies and the transportation strategic implementation plan.

The Approach 17 Queen City Waterfront

The Policy Framework: Local Waterfront Revitalization Program

The City of Buffalo’s Local Waterfront Background Revitalization Program (LWRP) is the official policy framework for planning along the The State of New York coastal management waterfronts of the Queen City. It applies program already provides for the administra- federal coastal zone management policies tion of waterfront areas according to a generic that are tailored to local needs and circum- set of thirteen policies aimed at enhancing stances through a state-administered coastal the character of waterfront communities, management program. When approved by promoting appropriate economic development, the Mayor, adopted by Common Council protecting and restoring natural resources, and accepted by the Department of State, protecting and improving environmental the LWRP will be the authoritative policy quality, and promoting use of waterfronts framework for Buffalo’s waterfront develop- and protecting cultural resources there. ment and preservation. (See Volume 3 for the final draft of the City of Buffalo Local Waterfront Revitalization Program.) The Local Waterfront Revitalization Program allows the City of Buffalo to tailor those broad policies to respond to specific circum- stances and meet local needs in the coastal zone along the Niagara River, Lake Erie shore- line, Scajaquada Creek, Buffalo River and Cazenovia Creek. These policies will provide the framework for an action strategy to help make the City’s vision for the waterfront a reality. This action strategy will include pro- posals for changes in land use, revisions to municipal zoning, prioritization of capital projects for waterfront improvement, and a comprehensive listing of public and private actions required to implement the strategy. The LWRP was developed by the City of Buffalo with the assistance of outside planning consultants and in close collaboration with waterfront communities, stakeholders and citizens-at-large. It was based on a careful analysis of existing land use and zoning, cultural and historic resources, water quality, natural resources, other environmental constraints, public access and recreational opportunities, concerns about flooding and The boundaries of the LWRP and Buffalo Waterfront Corridor erosion, and navigational requirements along Initiative are similar, but the transportation corridor requires a larger area to address the adjoining network of local roads. Buffalo’s waterfronts.

18 The Policy Framework: Local Waterfront Revitalization Program A Strategic Plan for Transportation Improvements

This analysis has helped identify specific appreciation of the depth of policies and opportunities or areas of concern on the policy standards requires a close of the LWRP waterfront, with an emphasis on identifying itself (See Volume 4). What follows is a brief abandoned or underutilized areas that need summary of the policies with highlights of revitalization, and assessing where and how what each one will mean for Buffalo’s we can improve the connections between waterfronts. land and water. This analysis attempted to balance proposals for land use with protec- Policies for the Developed Waterfront tion of natural resources and always to emphasize the promotion of land uses on or 1. Foster a pattern of development in the near the water to be “water-dependent uses.” coastal area that enhances community character, preserves open space, makes efficient use of infrastructure, makes beneficial use of a coastal location, and Benefits of an LWRP minimizes adverse effects of development. For Buffalo, this means to: The Local Waterfront Revitalization Program provides an array of benefits for local spon- • Concentrate development and sors. In the case of Buffalo, it will provide the redevelopment in order to revitalize City greater control over state and federal deteriorated and underutilized areas actions proposed along the waterfront and of the waterfront, and strengthen and better coordination with those agencies. It prioritize the traditional waterfront will increase Buffalo’s ability to attract devel- focus of these areas. opment along the waterfront and assure • Ensure that development or land uses that this development is appropriate to the make beneficial use of their coastal waterfront location. location, promoting water-dependent The LWRP will also improve Buffalo’s chances and water-enhanced uses. for winning both public and private grant • Maintain and enhance natural areas, funding for waterfront projects. Funders recreational areas, and open space. usually want to know that their resources are being directed according to a larger planning • Minimize the potential adverse environ- framework. Overall, the LWRP will promote mental, land use, or economic impacts changes in the Buffalo waterfront that will of development and redevelopment help revitalize it and improve community and through zoning revisions, enforcement, environmental quality of life. and other appropriate measures. • Protect and strengthen the quality of life in waterfront residential areas including Riverside and Black Rock, Policies sections of Front Park, and the Seneca The LWRP includes a comprehensive and Babcock neighborhood. detailed set of policies, policy rationales and • Develop and adopt a waterfront trans- policy standards specifically tailored to local portation plan that addresses local circumstances along Buffalo’s waterfronts. access, as well as access to Canada. These begin with the generic policies stipulat- ed by federal and state governments but • Lend focus to the waterfront as an extend into far greater detail as they are International Gateway. applied to the Buffalo local waterfront revitalization area. A full understanding and

The Policy Framework: Local Waterfront Revitalization Program 19 Queen City Waterfront

2. Preserve historic resources, including Policies for the Natural Waterfront efforts to: 4. Minimize loss of life, structures, and natural • Maximize preservation and retention of resources from flooding and erosion, historic resources in general, using the including measures to: U.S. Secretary of the Interior’s • Minimize the loss of human life and Standards for Identification, Restoration structures from flooding and erosion and Rehabilitation as a guide. hazards. • Protect and preserve archaeological • Protect public lands and public trust resources in the vicinity of the inner lands and the use of these lands when harbor, along the Buffalo River, and in undertaking all erosion or flood control other areas of the waterfront. projects. • Protect and enhance resources that are • Manage navigation infrastructure significant to the coastal culture and to limit adverse impacts on coastal maritime, industrial, and political history processes. reflected in Buffalo’s harbor, grain elevators, Erie Canal, and Underground • Expend public funds for the manage- Railroad sites. ment or control of flooding or erosion hazards only in areas of the waterfront • Protect and promote historic ship- that will result in a proportionate wrecks in the waters off the Buffalo public benefit. waterfront. 5. Protect and improve water resources, • Preserve and enhance historic light- including measures to: houses and other navigational struc- tures situated in the Buffalo Harbor. • Prohibit direct discharges that would cause or contribute to the contraven- 3. Enhance visual quality and protect tion of water quality standards and outstanding scenic resources, including targets in local surface waters. measures to: • Minimize non-point source pollution • Protect, enhance and improve visual of coastal waters and manage activities quality throughout the local waterfront causing non-point source pollution. revitalization area. • Protect and enhance the quality of • Identify and protect aesthetic values surface waters in Buffalo. associated with recognized areas of high scenic quality. • Protect and conserve the quality and quantity of potable water. • Protect the aesthetic quality of locally recognized scenic areas. • Support efforts to develop a common system for the management of the use, withdrawal, and diversion of water from the Great Lakes basin.

20 The Policy Framework: Local Waterfront Revitalization Program A Strategic Plan for Transportation Improvements

6. Protect and restore ecological resources, • Remediate inactive hazardous waste including significant fish and wildlife sites, particularly in Sub-Areas 3 and habitats, wetlands, and rare ecological 4, which adversely impact significant communities, including measures to: environmental resources, water quality, or important habitat areas. • Protect State-designated Significant Coastal Fish and Wildlife Habitats. • Encourage community awareness and stewardship of natural resources along • Support and manage the restoration the waterfronts through citizen work of significant coastal fish and wildlife and public education. habitats, wherever possible, so as to foster their continued existence as • Prohibit purchase by the City of Buffalo natural, self-regulating systems. products containing, in whole or in part, wood from tropical or temperate • Protect and develop areas as locally rainforests excepting those woods that significant fish and wildlife refuges are proven to have been harvested in and/or habitats, where appropriate, an environmentally sound manner as including portions of the Buffalo River, certified by the Forest Stewardship Scajaquada Creek and Hoyt Lake, Council. northern Squaw Island, the Ogden Estate Property, and lands connecting 7. Protect and improve air quality, including the Tifft Nature Preserve with the measures to: Buffalo River. • Control or abate existing and prevent • Protect, restore, and create freshwater new air pollution. wetlands in appropriate areas, including • Limit discharges of atmospheric Seneca Bluffs, Ogden Estates, and radioactive material to a level that Times Beach. is as low as practicable. • Manage harbor operations, including • Capture and recycle chlorofluorocarbon vessel speed limits and no wake zones, compounds during service and repair of to protect ecological resources from air conditioning and refrigeration units disturbance. to the greatest extent possible. • Limit bank disturbance and dredging • Limit sources and remediate the impacts and filling activities, particularly along of the atmospheric deposition of pollu- the Buffalo River. tants to Lake Erie and the Niagara River, • Manage dredging of designated particularly from nitrogen sources. navigation channels in the Buffalo 8. Minimize environmental degradation from Harbor area in a manner consistent solid waste and hazardous substances and with the protection of significant wastes, including measures to: fish and wildlife habitats and other important resources. • Encourage the management of solid waste to protect public health and • Support the remediation, to the great- control pollution. est extent possible, of contaminated Buffalo River, Niagara River, Scajaquada • Manage hazardous wastes to protect Creek and Hoyt Lake bottom sediments public health and control pollution. as per the Buffalo and Niagara River • Protect the environment from degrada- Remedial Action Plans. tion due to toxic pollutants and sub- stances hazardous to the environment. • Prevent and remediate the discharge of petroleum products.

The Policy Framework: Local Waterfront Revitalization Program 21 Queen City Waterfront

• Transport solid waste and hazardous Policies for the Working Waterfront substances and waste using routes 10. Protect existing water-dependent uses, that protect the safety, well-being, and promote the siting of new water- general welfare of the public and the dependent uses in suitable locations, environmental resources of the State, and support efficient harbor operation, and using methods that provide for including measures to: the continued use of all transportation corridors, highways and facilities. • Protect and improve the economic vitality of water-dependent uses along • Prohibit waterfront siting of solid and the City of Buffalo waterfronts, includ- hazardous waste facilities, including ing marinas, transshipment facilities, automobile scrap facilities, transfer water and wastewater treatment stations, and concrete recycling facilities, plants, and other land uses that require as inappropriate uses for the waterfront a waterfront location to effectively and phase out such facilities as already operate. exist when possible. • Promote the siting of new water- dependent uses at suitable locations Policies for the Public Waterfront and provide for their safe operation. 9. Improve public access to and use of public • Protect and improve the economic lands and waters, including measures to: viability of water-dependent uses. • Promote appropriate physical public • Allow water-enhanced uses that com- access and recreation throughout plement or improve the viability of the waterfront areas. water-dependent uses. • Provide public visual access to • Promote the efficient management of waterfront lands and waters at all surface waters and underwater lands. sites, where practical. • Support efficient harbor operations. • Preserve public interest in and use of lands and waters held in public • Enhance the City’s waterfront as a trust by the State. quality of life amenity to attract potential businesses, laborers, and visitors to the • Assure public access along public City and region. trust lands above the line of mean low water mark. 11. Promote the sustainable use of fish and wildlife resources, including measures to: • Provide access and recreation that is compatible with natural resource • Ensure the long term maintenance and values. health of living marine resources in Lake Erie, the Niagara River, and the • Where feasible, establish and maintain Buffalo River. ownership of the waterfront to ensure public use and access. • Provide for commercial and recreational use of Lake Erie and Niagara River • Where feasible, utilize conservation fisheries. easements to provide public access and greenway trail development along 12. Protect existing agricultural lands – the waterfront. not applicable to Buffalo.

22 The Policy Framework: Local Waterfront Revitalization Program A Strategic Plan for Transportation Improvements

13. Promote appropriate use and develop- ment of energy and mineral resources, including measures to: • Conserve energy resources in transportation, building design and construction, landscaping, and recycling. • Promote alternative energy sources that are self-sustaining, including solar and wind powered energy generation. • Do not site energy generating and transmission facilities along the Buffalo waterfront that utilize non-renewable resources because they are considered inappropriate uses that would not provide significant public benefit. • Minimize adverse impacts from above ground and underground fuel storage facilities, particularly in Sub-Area 3 and along the Buffalo River corridor in Sub-Area 4. • Prohibit commercial mining and other mineral or gravel extraction activities as inappropriate uses for the Buffalo waterfront. The sub-areas used for the Local Waterfront Revitalization Program helped structure the City’s plan. (Source: Wendell Duchscherer) • Conduct ice management practices that do not interfere with infrastructure systems, impair significant fish and SUB-AREA 1: wildlife and their habitats or increase shoreline erosion or flooding. Riverside, Black Rock, Squaw Island North, and Scajaquada Creek • Discourage development of energy resources on the outer continental shelf This area of the LWRP now has a mix of in Lake Erie. commercial and residential land uses, including water-dependent marine-oriented commercial uses, with some important areas of parkland and cultural uses and a large Land Use by Sub-Area area of industrial and former industrial uses. Proposals for continued and new land The LWRP for the Buffalo waterfront also uses include: provides a broad framework for revitalization and restoration of waterfront lands through • Keep mix of neighborhood commercial an overall proposal for appropriate land uses and residential uses along the east side consistent with the policies of the LWRP as of Niagara Street. well as with the goals for the Queen City • Water-dependent and marine commer- Waterfront. Ultimately, this proposal will be cial uses should be continued and translated into land use and zoning maps expanded, where appropriate, along to govern ongoing development in the the waterfront, west of the Interstate LWRP. This section provides a brief overview 190 and Niagara Street. of that proposal.

The Policy Framework: Local Waterfront Revitalization Program 23 Queen City Waterfront

• Consider existing residential building on SUB-AREA 2: the waterfront for multiple-use, with West Side, Peace Bridge Gateway, commercial and neighborhood retail Lower Niagara Street, Downtown and service uses on the ground level. and Northern Outer Harbor • Keep mix of neighborhood commercial This area has an extraordinary variety of and residential uses on Amherst Street. land uses including mixed commercial and • Revitalize old industrial lands in light industrial along upper Niagara Street, Tonawanda Street industrial corridor residential near the Peace Bridge, important and south of Scajaquada Creek by park lands, waterfront residential, and improving existing infrastructure and significant vacant lands on the northern aesthetics and creating a fifty foot Outer Harbor. Proposals for continued and riparian buffer along the creek. new land uses include: • Protect, preserve and enhance • Keep mix of commercial and light Olmsted-designed Riverside Park industrial uses along Niagara Street, and Delaware Park. from Forest Avenue to the Peace Bridge. • Reserve land at mouth of Scajaquada Creek to complement the Scajaquada • Take advantage of historic brick Pathway. building stock for light industrial, office and loft residential uses. • Promote conversion of the Scajaquada Expressway to boulevard or parkway • Improve the aesthetic quality of this as consistent with these proposals. area to compensate for limited opportunities for immediate water- • Keep wastewater treatment plant on side development. Squaw Island as a water-dependent use. • Take advantage of views of the Niagara • Redevelop north end of Squaw Island River, Squaw Island and Canada. as a public park. • Improve streetscape to enhance this • Reestablish northern tip of Squaw neighborhood and increase its value Island as a protected wildlife habitat. as a segment of the New York State • Connect Squaw Island Park with Seaway Trail. Broderick Park by public pathway. • Improve Riverwalk multi-use pathway • Continue exploration of means to system to facilitate better public access mitigate negative impacts of highway to the waterfront and improve bicycle infrastructure on neighborhoods and to and pedestrian safety. reconnect residential areas to the water. • Redevelop the Peace Bridge Plaza as an international gateway with shared border management and minimum negative impact on surrounding community from demolitions, truck traffic or other nuisances. • Revitalize the gateway area adjacent to the Peace Bridge Plaza through reinvestments in Front Park and LaSalle Park. • Revise Porter Avenue as an Olmstedian boulevard connecting the park and parkway system to the waterfront.

24 The Policy Framework: Local Waterfront Revitalization Program A Strategic Plan for Transportation Improvements

• Reinforce residential areas with infill • Maintain General Mills and other and rehabilitated housing. commercial and light industrial activities on Kelly Island as important water- • Promote new and refurbished water- dependent industrial uses. related uses at Cotter Point including the West Side Rowing Club, Buffalo • Zone Kelly Island to shift emphasis Yacht Club, from heavy industrial uses to marine waterfront campus, and the Great commercial and marine industrial uses. Lakes Research Center. • Relocate the U.S. Coast Guard Station • Restore the landscape connection at the mouth of the Buffalo River fur- across Interstate 190 from The Front ther upstream or southward to the to Cotter Point and LaSalle Park. Outer Harbor, and redevelop the origi- nal site in support of increased public • Maintain and expand mixed-use and access to the historic Buffalo residential uses in the Waterfront Lighthouse. Village/Erie Basin Marina area. • Redevelop Seaway Piers area with • Realign and re-establish Erie Street marine commercial uses and support as a direct radial connection from facilities. Downtown to the waterfront. • Provide a pedestrian and multi-use • Develop new mixed-use commercial bridge connection from the Inner Harbor office, residential, and retail uses along and Erie Street to the Outer Harbor as a redeveloping Erie Street – in effect, consistent with safe and efficient extend Downtown toward the water- passage of recreational and commercial front. vessels along the Buffalo River. • Establish a setback of fifty feet along the Buffalo River and from the Erie SUB-AREA 3: Basin Marina to the Inner Harbor and Southern Outer Harbor, Kelly Island beyond. and the Union Ship Canal Area • Establish tourism, heritage, recreation, and maritime uses at the Erie Canal With the exception of Gallagher Beach and Harbor, Veterans Park, and Naval and the NFTA Small Boat Harbor and a scattering Servicemen’s Park projects. of private marinas and industrial uses, much of this sub-area includes former industrial • Improve boat, bicycle, pedestrian, lands left underused and abandoned. and transit access to the Inner Harbor However, the potential for revitalization and developments. redevelopment in this area of the waterfront • Promote mixed-use commercial, retail, is very substantial. Proposals for continued and office uses to complement visitor- and new land uses include: oriented uses in this area and create a • Promote water-dependent marine public space and public "edge" to the commercial and light industrial uses Downtown. along Kelly Island and the western • Redevelop shoreline areas south and shoreline of the Buffalo Ship Canal. east of the Erie Canal Harbor as mixed- • Rebuild the Michigan Avenue Bridge use commercial and residential areas. to reestablish vehicular access to the • Preserve and reuse the DL&W terminal Outer Harbor. building and promote redevelopment and reuse in the Cobblestone Historic Preservation District.

The Policy Framework: Local Waterfront Revitalization Program 25 Queen City Waterfront

• Allow mixed-use development of the • Maintain the Old First Ward and other 120-acre NFTA-owned Outer Harbor residential neighborhoods as stable resi- site including housing, entertainment, dential areas enhanced by commercial and tourism uses, making sure to and residential uses along the river provide public access and greenspace shore. along the water’s edge. • Redevelop the Katherine Street penin- • Promote establishment of a new state sula and adjacent areas with a mix of park on the Outer Harbor to support marine and light industrial uses and res- expansion of marine recreational and idential where appropriate. other water-related activities. • Preserve lands on the Concrete Central • Connect these uses to the Inner peninsula as open space and incorpo- Harbor and Downtown via the rate this area as part of the Tifft Farm Greenway Trail System. Nature Preserve. • Promote commercial and light industrial • Maintain and improve the county- uses on environmentally remediated owned Smith Street waterfront access lands along the Union Ship Canal. point for passive recreational use and possible small-craft river access. • Connect Union Ship Canal redevelop- ments to the overall Greenway Trail • Maintain the contaminated area east of System. the Smith Street site as open space. • Promote the former LTV/Republic Steel SUB-AREA 4: site for light manufacturing activities, The Buffalo River Corridor replacing the legacy of heavy industrial uses that previously were dominant. The Buffalo River Corridor includes a range of land uses along the winding watercourse, • Prepare for a long term phase out of including long-established residential neigh- the Mobil Oil facility and provide for borhoods such as the Old First Ward, The less intensive uses, obviating the need Valley, Kaisertown, South Buffalo and others; for dredging upriver and allowing the a range of active and inactive industrial waterway to recover from years of pol- operations; a large ensemble of concrete lution. grain elevators; extensive vacant and environ- • Use shoreline properties around the mentally damaged former industrial lands; Bailey Avenue Bridge crossing for parks and natural areas immediately adjacent to and passive recreation. the river itself. Proposals for continued and new land uses include: • Maintain residential and mixed com- mercial uses in neighborhoods beyond • Emphasize land uses that will support Bailey Avenue along Stachowski Park, protection and restoration of natural Cazenovia Park, and Seneca Street. resources and water quality. • Preserve shore lands in the Seneca • Develop new uses along the river, Bluffs area as a natural habitat. respecting a twenty-five foot open space corridor along the shore. • Restore important wetlands areas and maintain the natural shoreline. • Promote transition from heavy industry to cleaner light manufacturing and warehouse uses on reclaimed brown- field sites.

26 The Policy Framework: Local Waterfront Revitalization Program A Strategic Plan for Transportation Improvements

Achieving the Vision: Projects in the Buffalo Waterfront Corridor 1

Elements of the Vision • Emerging projects are consistent with vision, goals and policy and have strong The community vision for Buffalo’s waterfronts public support, but are not yet ready to will be achieved step by step, one project at a move forward. time. The policy framework for the waterfront • includes projects is being put in place in the same manner, Longer term visions that are consistent with vision, goals, step by step. This section describes many of and policy but which require much the discrete steps in that process by identify- more work, both technical and proce- ing and detailing individual projects that have dural, before they can become viable been proposed, planned and, in many cases, projects. This category also includes fully implemented on Buffalo’s waterfronts. important waterfront sites for which no As described in the Approach section, this clear concept has yet been put forward accounting of projects has been derived but which clearly merit attention for from a careful review and analysis of more the broader benefit of the waterfront. than a quarter century of planning work for This kind of categorization of projects can the Buffalo waterfront. Described below are be useful in the community-wide process of the projects that have been persistently priority-setting. The final section in this plan proposed as critical to the appropriate suggests a framework for making decisions development of the waterfront and which, about priorities. In brief, it advises that we according to current analysis, are consistent finish what we start; build from strength; with the vision, goals and policy framework make change visible; hew to core values; that have emerged. and avoid spending all of our available The waterfront projects are organized into money in one place. These principles won’t four categories according to their status: make our decisions for us, but they can be • Recent achievements are projects a guide for implementation that will proceed that have been completed, or in some in a reasonably orderly, predictable, and cases, are currently under construction. transparent fashion. It is important to acknowledge the many achievements that have already been made. • Current work contains projects that have a defined concept, public support, clear agency leadership, and are mov- ing toward funding and construction.

1 Abstracted from Volume 2.

Achieving the Vision: Projects in the Buffalo Waterfront Corridor 27 Queen City Waterfront

Elements of the Vision

Recent Achievements Current Work

Inner Harbor/ • Erie Basin Marina & Waterfront • Erie Canal Harbor Development Downtown Village Development • Foot of Main Street Development • Naval Park Relocation • War Memorial Auditorium Reuse • Buffalo Inter-modal Transportation Center • Inner Harbor Greenway

Outer Harbor/ • Lighthouse Preservation & Promenade • Union Ship Canal Redevelopment South Buffalo • Small Boat Harbor • Times Beach Nature Preserve Expansion • Tifft Nature Preserve • Gallagher Beach Phase II • Gallagher Beach Phase I • Southtowns Connector • Riverwalk Greenway, most segments • Outer Harbor Greenway

Buffalo River • Buffalo River Greenway • Cazenovia Park Redevelopment • 100’ Setback Adopted • South Park Restoration • Old Bailey Woods Park Designation • Ogden Estates • Seneca Bluff’s Habitat Restoration • Buffalo River Sediment Remediation • Smith Street Habitat Restoration • BSA Combined Sewer Overflow Remediation • Ohio Street Habitat Restoration • Confluence Point Habitat Restoration • Stachowski Park Improvements

• Broderick Park Improvements • Peace Bridge Improvements Gateway/ • Bird Island/Nowak Pier Construction • Great Lakes Center West Side • Lakeview/Hope VI Housing Redevelopment • Frank Lloyd Wright Boathouse • Lower Niagara Street Tops • Riverwalk Greenway, most segments

Black Rock/Riverside/ • George Washington Park/ • Tonawanda Street Industrial Corridor Niagara Street Reconstruction Redevelopment Scajaquada • Ontario St. Boat Launch • Towpath Park (Phase II) & Cornelius Creek Park • Scajaquada Pathway (Phase III) • Harbour Place • Scajaquada Corridor Study • Towpath Park (Phase I) • Richmond Avenue • North Squaw Island Park (Designation & Remediation) • Scajaquada Pathway (Phases I & II from River to Elmwood Avenue) • Riverwalk Greenway, most segments • Riverwalk Greenway, most segments

28 Achieving the Vision: Projects in the Buffalo Waterfront Corridor A Strategic Plan for Transportation Improvements

Emerging Projects Long term Vision

Inner Harbor/ • Erie Basin/Waterfront Village Build Out • Cobblestone District Development Downtown • Erie Street Redesign • City Ship Canal Redevelopment • Downtown-Outer Harbor Water Taxi • Kelly Island Redevelopment • West of City Hall • Niagara Thruway Mitigation Downtown • Gateway Bridge • Michigan Street Lift Bridge • Inner Harbor Transit Improvements

Outer Harbor/ • OPUS Master plan • Outer Harbor Point Tourist Facility Development South Buffalo – Seaway Piers Development • South Outer Harbor Industrial Development – North Outer Harbor Development • Small Boat Harbor Expansion – Bell Slip Development • Cargill Pool/South Marina Development • Independent Cement Commercial Development • Tifft Nature Preserve Expansion • Hopkins Street Redevelopment • South Buffalo Landfill Golf Course Development • South Buffalo Greenway, South Park to Outer Harbor • Offshore Areas

Buffalo River • Seneca St Business District • Buffalo River Watershed Management Plan • Buffalo River Greenway • Katherine Street Peninsula Redevelopment – Preservation • Republic Steel/LTV Industrial Redevelopment – Industrial Heritage Trail • Concrete Central Peninsula – Multi-Use Trail Development • Old First Ward – Creation of Greenway Park • The Valley Community – Smith Street Entrance

Gateway/ • Broderick Park Completion • Grant/Ferry International Marketplace West Side • Front Park Restoration Revitalization • LaSalle Park Restoration • Virginia-Carolina Exchange Redesign • Lower Niagara Street Revitalization • Lower West Side Redevelopment and Traffic Calming • Massachusetts Avenue Project • Lower West Side Trail Connections • Connecticut Street Revitalization • Mid-Niagara Street Redevelopment • Porter Avenue Streetscape Improvements • Broderick to N. Squaw Island Park Trail

Black Rock/Riverside/ • Delaware Park Master Plan • Harbour Place – Further Development Scajaquada • H.H. Richardson Renovation • Niagara Street – Revitalization North of Forest • Scajaquada Expressway Redesign • Tonawanda/Ontario Commercial • Scajaquada Creek Cleanup District Revitalization • Riverside Park • Canal Locks – Mixed-Use and Public Access Development • Niagara Thruway Relocation in Riverside

Achieving the Vision: Projects in the Buffalo Waterfront Corridor 29 Queen City Waterfront

Transportation Projects in the Vision

Recent Achievements Current Work

Inner Harbor/ • Buffalo Inter-Modal Transportation Center Downtown • Inner Harbor Greenway

Outer Harbor/ • Riverwalk Greenway, most segments • Southtowns Connector South Buffalo • Outer Harbor Greenway

Buffalo River • Buffalo River Greenway • 100’ Setback Adopted • Old Bailey Woods Park Designation • Seneca Bluffs Habitat Restoration • Smith Street Habitat Restoration • Ohio Street Habitat Restoration • Confluence Point Habitat Restoration

Gateway/ • Riverwalk Greenway, most segments • Peace Bridge Improvements West Side

Black Rock/Riverside/ • Riverwalk Greenway, most segments • Tonawanda Street Industrial Corridor Scajaquada • George Washington Park/ Redevelopment Niagara Street Reconstruction • Scajaquada Pathway (Phase III) • Ontario St. Boat Launch and • Scajaquada Corridor Study Cornelius Creek Park • Scajaquada Pathway (Phases I & II from River to Elmwood Avenue)

30 Achieving the Vision: Projects in the Buffalo Waterfront Corridor A Strategic Plan for Transportation Improvements

Emerging Projects Long term Vision

Inner Harbor/ • Erie Street Redesign • Niagara Thruway Mitigation Downtown Downtown • Downtown-Outer Harbor Water Taxi • Inner Harbor Transit Improvements • Gateway Bridge

Outer Harbor/ • South Buffalo Greenway, South Park to Outer South Buffalo Harbor

Buffalo River • Buffalo River Greenway • Virginia-Carolina Exchange Redesign – Grain Elevator Preservation • Lower West Side Redevelopment and Traffic Calming – Industrial Heritage Trail • Lower West Side Trail Connections – Trail Development – Creation of Greenway Park • Niagara Thruway Relocation in Riverside – Smith Street Entrance

Gateway/ • Broderick to N. Squaw Island Park Trail West Side • Porter Avenue Streetscape Improvements

Black Rock/Riverside/ • Scajaquada Expressway Redesign Scajaquada

The project descriptions that follow are organized into six categories: (1) transportation connections that span more than one region; (2) the Inner Harbor area and Downtown; (3) the Outer Harbor area and South Buffalo; (4) the Buffalo River; (5) the Gateway and West Side; and (6) Riverside, Black Rock and Scajaquada. Like the chart above, they are also organized through the four tiered planning framework of Recent Achievements, Current Work, Emerging Projects, and Longer Term Visions.

Achieving the Vision: Projects in the Buffalo Waterfront Corridor 31 Queen City Waterfront

Path directly with the Riverwalk. While short, this segment was very expensive on a per foot basis and involved difficult engineering to cross the creek, bypass a marina, and pass beneath a railway bridge. Construction on this project began in 2003 and the segment was opened in 2005.

CURRENT WORK

Tow Path park in Riverside sits on the Outer Harbor Access Project Niagara River. While the “Southtowns Connector” was originally proposed as a super-highway to connect Buffalo with its southern suburbs, the current project proposal includes improving road access to specific developable sites (Republic Steel Site, Union Ship Canal, Bethlehem Steel Site, and the Buffalo Outer Harbor); reconfiguring the Route 5/Fuhrmann Boulevard/Ohio Street Complex as a water- front arterial system consistent with proposed land uses; and providing adequate service for commuter/commercial traffic between the Southtowns and Downtown Buffalo. The Scajaquada Bike Path winds under a The Queen City Waterfront Transportation Project map shows the railroad bridge as it approaches the Black connections between the city and the region. Incorporation of Seaway Trail design elements Rock Canal. has also been proposed. One important element of the proposal Transportation Connections involves construction of an arterial connection along Tifft Street, through the LTV/Republic RECENT ACHIEVEMENTS Steel site, across the Buffalo River, and connecting with I-190. This will improve Riverwalk in Riverside access to industrial sites while relieving traffic The portion of the Niagara Riverwalk from a slower-speed waterfront complex. traversing the Riverside community provides Mayor Masiello and Assemblyman Higgins direct public access to the Niagara River and have requested $35 million in federal funding bicycle/pedestrian linkages to municipalities to develop Route 5 between the Skyway just north of the City of Buffalo. This project and Ridge Road as a tree lined parkway. represents a huge success story and a major Depending on the final designs and align- addition to the waterfront. ments, the project will help achieve goals for public waterfront access and environmen- tal improvement. The project will promote Scajaquada Pathway economic development and transportation enhancement goals in any case. Phases I and II of this project, including links through Delaware Park, and from Elmwood Avenue to the west, were completed some time ago. Most recently completed was one final segment to connect the Scajaquada

32 Achieving the Vision: Projects in the Buffalo Waterfront Corridor A Strategic Plan for Transportation Improvements

the NFTA received $980,000 in state funding for an 8.5-mile bike and pedestrian pathway extending from the former DL&W rail terminal at the foot of Main Street to Gallagher Beach on Fuhrmann Boulevard. Stage 1 is complete as of June 2005, and work is ongoing.

Scajaquada Expressway Redesign The original proposal to transform the A greenway trail runs along the Inner Harbor. Scajaquada Expressway from a highway to a low speed boulevard or parkway was made over a decade ago. More recently it has been revived and a dedicated study of the possibili- ties commissioned. Consultants have produced a preliminary report on alternatives that define the possibilities of mediating between demands for transportation capacity enhancement, public access, and neighbor- hood connections. The corridor’s redesign will strongly influence the success of the Olmsted Crescent, a coordinated marketing effort for arts, culture, and heritage attrac- A shoreline trail runs parallel to Lake Erie on the Outer Harbor. tions geographically concentrated along the Expressway.

Inner Harbor Trails EMERGING PROJECTS This riverfront “esplanade” connecting the Gateway Bridge/Water Taxi Buffalo River with the rest of the waterfront has been a key recommendation of several There has been an extraordinary array of planning efforts, beginning with the work proposals over the years for improving of the Horizons Commission. The project’s connections between Downtown Buffalo essential goal is to provide public access and the Outer Harbor and other points south. to the waterfront. Much of this will be These have included low-level bridges, developed as part of the Erie Canal Harbor pedestrian bridges, tunnels, tramways, lift development. bridges, swing bridges, drawbridges, and transit bridges with approaches along Genesee Street, Erie Street, Church Street, Outer Harbor Greenway Main Street, and Michigan Avenue, and water taxis to take people across the Buffalo Numerous plans reference this greenway River between the Inner and Outer Harbors. trail as a top priority for the Outer Harbor Incorporation of Seaway Trail design elements and region. The trail and clear markers from the Niagara Street to would improve public access and open up Route 5 segments of the trail have been opportunities for commercial development. proposed. All proposals have implications for The City has invested $100,000 in an Outer related infrastructure investments, including Harbor Point promenade. In the fall of 2002, Fuhrmann Boulevard and Route 5, the downtown Niagara Thruway, and elsewhere.

Achieving the Vision: Projects in the Buffalo Waterfront Corridor 33 Queen City Waterfront

The potential investments, even for mainte- construction (federal byways only). Within the nance of existing structures, are enormous. City of Buffalo, the Seaway Trail follows The NYS DOT has allocated funding to study Niagara Street south through the Inner alternatives to the Skyway from 2003 to Harbor to Route 5. Further development of 2005. These projects have major implications the trail and support for this program should for all of the waterfront goals. be a priority.

South Park-Outer Harbor Greenway Buffalo River Greenway A multi-use path from South Park to the The Buffalo River Greenway is a multi-pur- Outer Harbor would connect a significant pose open space corridor and trail system part of Buffalo to the overall Greenway designed to improve access and management system. The route would run in an arc from of the Buffalo River’s recreational, cultural, South Park north to Tifft Street, then west and ecological assets. This fully developed past the Tifft Nature Preserve to the Small plan provides public access to the City’s Boat Harbor/Gallagher Beach area. It would waterfront amenities through a multi-use trail capitalize upon existing site constraints to and the creation of a Greenway Park System. improve public access while respecting City The Industrial Heritage Trail segment and economic development goals for the interpretive materials celebrate the Buffalo LTV/Republic Steel and Union Ship Canal River’s Native American, industrial and areas. Wetland and landfill site limitations architectural heritage. Components of the on development in the area make this plan also address environmental concerns project logically feasible. Further concept with provisions for wildlife habitat, pollution development is needed, but this project filtration, and flood retention capacities. This should be a future priority. project is an implementation priority.

Seaway Trail Development Lower West Side Riverwalk Link The New York State Seaway Trail is a 454- There is a need for improved public access mile scenic route paralleling Lake Erie, the between LaSalle Park and the Erie Basin Niagara River, Lake Ontario, and the St. Marina. The existing Riverwalk bike path is Lawrence River. The trail offers spectacular rarely used due to its isolation and perceived views of the Great Lakes and the St. vulnerability to criminal activity. There is no Lawrence Seaway, access to historic sites specific plan for this area, but clearly marked from the and the War trails, street furnishings, and landscaping of 1812, and numerous other recreational, might help to encourage its use. A clear, safe cultural, and heritage areas. The Seaway Trail pedestrian path is also needed to connect is the only U.S. Department of Transportation neighborhoods east of I-190 to Downtown. National Scenic Byway located in New York. National Scenic Byways possess outstanding qualities that exemplify the regional charac- teristics of specific regions. Both the State and Federal Scenic Byway programs encourage travelers to get off of major interstate routes to experience the unique scenic, cultural, historic, and heritage amenities located along local roadways. The programs offer designated byways marketing assistance, project funding, and legal protection from new billboard

34 Achieving the Vision: Projects in the Buffalo Waterfront Corridor A Strategic Plan for Transportation Improvements

Mid-Niagara Street Riverwalk Link West Side Thruway Revisions Currently, Riverwalk travelers follow an Several proposals have focused on improving unclear path along Niagara Street from the the section of the Niagara Thruway that travels Porter Avenue segment to the Scajaquada along the Black Rock Canal on Buffalo’s West Pathway. Streetscape improvements are need- Side. These have included removal of the ed along Niagara Street from Porter Avenue Breckenridge Street toll barrier, creation of a to the Scajaquada Pathway to clarify the canal-side park, improvement of Squaw Island pedestrian route amidst busy industrial traffic access at Ferry Street, and various attempts at on the corridor. Enhancements to this part of screening I-190 from view by neighborhoods. Erie County’s Riverwalk System would facili- These proposals make a strong gesture toward tate public access to the waterfront and accommodating needs for public access, improve bicycle and pedestrian safety. neighborhood connections, and environmental Concept plans were proposed in the Buffalo protection, while also promoting economic Greenway System Plan. This project has development and transportation improve- strong public support and would move for- ments. They deserve continued consideration. ward with the necessary public funding.

Riverside Thruway Mitigation LONGER TERM VISIONS A variety of proposals have been made over Buffalo “Big Dig” Downtown the years to repair or reverse the damage done to the Riverside neighborhood by the A variety of proposals have been made over construction of the Niagara Thruway. Some the years to mitigate the effect of the Niagara of these have proposed to cover or deck Thruway, that separates Downtown Buffalo I-190 as a means of extending Riverside Park from the waterfront. These have ranged from toward the river itself. Another proposal an improvement in bridges over or under- advanced some years ago envisioned the passes beneath the highway, to removal of rerouting of the Thruway at the Scajaquada the highway, to burying the highway in a interchange and continuing along the CSX tunnel. Other proposals have highlighted the railroad right-of-way into Tonawanda. A pre- potential for extending the Downtown street liminary feasibility study for this concept con- grid – especially along Erie, Genesee, Church, cluded that the cost for such a proposal Court, and Virginia Streets – from the city would be prohibitive. There remains, howev- across the highway right-of-way to the water. er, a strong voice in the community calling for While discussion of such proposals has addressing the impact of the Thruway on the recently been revived, there is no action plan Riverside neighborhood, and further investi- for such changes. Clearly, the proposals gation is required. would each improve public access to the waterfront. It would be possible to argue that removing the Thruway as an obstacle to the Downtown/Cobblestone/ waterfront would promote economic devel- First Ward Transit Improvements opment through property redevelopment. Several proposals have been made to (a) Proposals to "bury" the Thruway would also locate a transit station near the foot of Main need to be evaluated in relation to proposals Street, and (b) extend the transit line from to replace the Skyway with a tunnel. there to the south, and/or (c) construct a transit or vintage trolley loop through the Cobblestone District. Although the three pro- posals are different in scope and direction, each would help improve access to these areas and support efforts at economic devel- opment and neighborhood revitalization.

Achieving the Vision: Projects in the Buffalo Waterfront Corridor 35 Queen City Waterfront

Inner Harbor / Downtown via pedestrian and transit routes. Although contractors encountered difficulty in moving the vessels because of accumulated river sedi- RECENT ACHIEVEMENTS ments, the relocation and the veteran’s park Naval and Serviceman Park construction has been completed. The Naval and Serviceman’s Park represents the first The U.S.S. Little Rock, The Sullivans, and The completed element in a much more ambi- Croaker have been part of the downtown tious Inner Harbor development. Phase I work waterfront landscape for roughly two represents $15.5 million worth of work. decades, providing a significant tourist attrac- tion, but also obstructing some public access to the river. The relocation of the vessels and Shanghai Red’s restaurant the construction of a new naval museum will improve the heritage tourism attraction and The long-awaited restaurant to take the place rationalize waterside access. Other project of the former Crawdaddy’s Restaurant on the elements will enhance inter-modal circulation Erie Basin Marina is now open. The restaurant will provide an additional magnet for activity on the waterfront, and one that can be expected to draw visitors well beyond the summer months and sailing season.

The Navel and Serviceman Park has been relocated to accommodate the new Erie Canal Harbor development.

Many projects in the Inner Harbor have been recently completed.

Shanghai Red’s is a new restaurant on the Erie Basin Marina.

36 Achieving the Vision: Projects in the Buffalo Waterfront Corridor A Strategic Plan for Transportation Improvements

Concept drawings illustrate some of the promise of downtown waterfront development opportunities. (Source: ECIDA)

CURRENT WORK

Erie Canal Harbor Long the object of dreaming and planning, Buffalo’s historic Erie Canal district is now undergoing a great transformation. The inventory for this plan cataloged an amazing forty-three separate proposals for this twelve acre site. But the range of ideas was surpris- ingly coherent, encompassing a consistent mixture of waterfront access, heritage devel- opment, tourism attraction, and mixed use- proposals. Plans now in implementation are highly consistent with that planning history. Plans include new direct access to the Buffalo River waterfront; new infrastructure for trans- portation improvements by boat, bike, foot, The Erie Canal Harbor Project uses the historic street pattern for development parcels. (Source: Flynn Battaglia Architects PC, & the Western New York office of Empire State Development Corporation) and transit; and groundwork for future preservation and heritage tourism attractions. $46 million has been committed to the project’s waterside improvements, including

Achieving the Vision: Projects in the Buffalo Waterfront Corridor 37 Queen City Waterfront

relocation of the Buffalo & Erie County Naval and Serviceman Park and work to preserve historic Erie Canal features. The remaining project budget, including Donovan Building demolition and the con- struction of the intermodal transportation center, is approximately $100 million, with $31 million in federal funding earmarked for the project. The project has strong implica- tions for economic development and trans- portation as well as access. The Erie Canal One approach to parking supports for the proposed reuse of the Harbor has been subject to intensive public Memorial Auditorium. Alternatives involve the distribution of scrutiny on the disposition of the historic smaller parking facilities throughout the area. (Source: Buffalo Urban Development Corporation) Commercial Slip and Central Wharf. New project concepts and redesigns led to cost increases and delays. Construction on Phase II Bass Pro Retail Attraction/Buffalo of the Erie Canal Harbor project began in Intermodal Transportation Center August 2005. Plans for Buffalo's proposed Erie Canal Harbor Entertainment District were to make the former Blue Cross and Blue Shield Buffalo Memorial Auditorium home to Bass HealthNow Headquarters Pro Shops and other retailers. An accompany- ing plan provides for construction of a new Blue Cross and Blue Shield’s parent company, waterfront parking ramp immediately to the Health Now, initiated construction on a east on the site of the General William J. 431,000 square foot corporate headquarters Donovan State Office Building, which will be in late November, 2005 at 249 W. Genesee demolished. A new intermodal transportation Street. The former brownfield site will include center was also to be incorporated, including a preserved façade from the 1848 coal to gas a combination Amtrak, Metro Rail, Metro Bus conversion factory that previously dominated hub, and street level retail shops. About $8.1 the site. In September, the company was million in federal transportation money has projecting that the project will bring in been pledged to create the transportation approximately 1300 employees and will hub that will occupy the first floor of the new spend just under $100 million with and midrise building, giving travelers access to additional $25 million in site remediation. local, regional, and national trains and buses. The L shaped structure includes an eight story Contributions to economic development and tower, seven story atrium and a six story transportation improvement goals are clear, block of offices as well as an on site parking but the project will also contribute to water- structure. Its controversial design presents front access by drawing visitors to the vicinity itself from the I-190 in the shadow of the of canal and river. Much of this planning is Buffalo’s City Hall. It is the largest office now being revised as alternative sites are complex in the downtown since Fountain explored in the same area. Plaza was constructed in the 1980s.

EMERGING PROJECTS

Erie Street Waterfront Gateway A key project to emerge from the Buffalo Waterfront Corridor Initiative (Buffalo Corridor Management Project) has been the proposed realignment and redevelopment of

38 Achieving the Vision: Projects in the Buffalo Waterfront Corridor A Strategic Plan for Transportation Improvements

Erie Street from the center of Downtown, museum. New specific use proposals and tenants beneath the Skyway approaches and the need to be identified for this site. As of fall Niagara Thruway, to the Erie Basin Marina 2005, the DL&W is being considered as a site opposite the historic Buffalo Lighthouse. The for Buffalo’s casino and negotiations are under essence of the proposal is to create a direct way between NFTA and the Seneca Nation. and dramatic vista along Erie Street, straight- ened to conform to its historic alignment. These changes would create new direct visual Cobblestone District Developments and physical access to the waterfront. The A wide range of proposals has been put realignment would also allow the delineation forward from various quarters for the area of new waterfront development parcels to immediately to the east of the new arena, promote creation of a new urban arm of but the future of this location is far from clear. Downtown reaching down to the water. A preservation-inspired effort to rebuild cobblestone streets bore fruit several years ago. Recently, Cobblestone Development, Erie Basin Marina/ a local entrepreneur, purchased the sprawling Waterfront Village Projects 1.5 acre Benlin Distribution Services complex A number of projects are being discussed at 26 Mississippi Street for $1.1 million, with that would take advantage of the proposed plans to create a new mixed-use develop- Erie Street Waterfront Gateway. These include ment. Proposals for extending light rail or new residential and mixed-use developments, vintage trolley service have been discussed. possible new office buildings for major tenants, One noteworthy residential conversion – additional restaurant and commercial devel- the Elk Terminal – has taken place. An earlier opment, a new hotel, added boat launch proposal envisioned a business park in the capacity, and other developments. These are vicinity. The concept is unclear, but the appropriate projects for an urban section of potential is substantial for economic develop- the Buffalo waterfront and will bring new ment, building neighborhood connections to people down to enjoy the water. For all of the waterfront, and improving transportation. these possibilities, careful attention to design Further work is clearly warranted. issues is required, including site design, building height and mass, setback, and direct waterside access. West of City Hall The area of downtown west of South Elmwood and east of the Niagara Thruway DL&W Terminal Reuse has received little attention and has unexplored The “foot of Main Street,” sometimes known potential for waterfront oriented develop- as the “crossroads site,” is one of Buffalo’s ment. Among the proposals made in the past most planned-for locations. City of Buffalo was one to create a Lake Shore Parkway. The planning focused on a sports and entertain- proposed route was similar to one envisioned ment concept for the area, building on the recently as part of reconnecting Genesee completion of the HSBC arena, and reflecting Street to the water. It is not to be confused the potential for tourism at the Erie Canal with references to a Lakeshore Parkway on Harbor. The most recent major proposal was the Outer Harbor. Rehabilitation of the for the Adelphia Communications National Waterfront Elementary School and creation Operations Center, now abandoned. The site of a new waterfront school are also part of remains an attractive opportunity for a range the picture. The potential for restoring historic of uses, as does the former DL&W railway street patterns is also significant. The path terminal for an adaptive reuse development. of the Seaway Trail through this area also One potential use, frequently mentioned in requires reinforcement. This area deserves the planning legacy, would be a Great Lakes further attention.

Achieving the Vision: Projects in the Buffalo Waterfront Corridor 39 Queen City Waterfront

LONGER TERM VISIONS

City Ship Canal The City Ship Canal/Kelly Island site – especially locations directly across the Buffalo River from Downtown – has been the subject of a variety of proposals. Many of these are Outer Harbor / likely in conflict with each other and with existing uses. Prominent proposals include South Buffalo expanded boat launch facilities, industrial retention and expansion, residential develop- RECENT ACHIEVEMENTS ment, passive recreation areas, and tourism attractions. No clear concept has emerged, Times Beach Nature Preserve but the potential demands to be explored. While a large number of alternative uses had been advanced for Times Beach over the years (a boat harbor, bathing beach, aquarium, windmills, and other uses), the development of the site as a nature preserve and bird-watching area seems most appropriate. The U.S. Army Corps of Engineers project included repair of the dike that encloses dredging spoils, repair of the overall ecosystem, and construction of a network of boardwalks to allow visitors safe and unintrusive access to the site. The project has advanced environmental goals by limiting the disturbance of contaminants, preventing contact with them, and preserving crucial wildlife habitats. The construction of walkways promotes public access and, insofar as it promotes birding and other visitation, economic development through tourism. Work was completed in 2004.

The South Buffalo / Outer Harbor sub-area includes projects south of the Buffalo River.

The Times Beach nature area preserves habitat for the internationally designated Important Bird Area along the Niagara Corridor.

40 Achieving the Vision: Projects in the Buffalo Waterfront Corridor A Strategic Plan for Transportation Improvements

Small Boat Harbor Governor Pataki’s proposal in 2004 to desig- nate the NFTA Small Boat Harbor as part of a new waterfront State Park confirmed years Gallagher Beach State Park of planning work and responded to continu- ing strong market demand for marina The development of Gallagher Beach has facilities. Most project proposals for the site been one of the waterfront’s most recent have focused on further development of its success stories. While previous plans suggest- current use as a boat launch and docking ed use of this site for marina expansion, or as facility through expansion, upgrade or addition a fish spawning area, the recent development of support facilities, services such as restaurant of the site as a windsurfing and boat launch and retail sales, and improved linkages with site has been met with general acclaim. This the Route 5 Seaway Trail segment. Other was confirmed by the Governor’s 2004 project concepts over the years have included proposal to incorporate the site in a new nature preserves, industrial uses, and water- waterfront State Park. A second phase of front trail expansion. A major expansion of work is under way. Gallagher Beach repre- boating facilities was completed in the 1990s, sents an important victory for the public creation of new waterfront parkland is under access goal. Improved linkages to the Seaway way, and further expanded docking facilities Trail Route 5 segment are also proposed. are being reviewed. All of this work advances overall goals of providing public access and supporting economic development. Buffalo Lakeside Commerce Park Work has begun on the first of four phases of development of a master planned office, industrial, and recreation area surrounding the Union Ship Canal. Subsequent phases of development may include a boat launch, dock, and other uses. Voluntary clean-up agreements have been completed for the two parcels that make up the first phase. Demolition and right-of-way design was completed in the spring of 2003, with road and utility construction following immediately afterward. The project represents a major step toward meeting the economic and development goals of providing “shovel ready The Small Boat Harbor will become a part of the new Buffalo Waterfront State Park. sites,” while also advancing environmental repair and public access goals. Important transportation improvements, including a new access road system and improved access from Route 5 with Seaway Trail design elements, are important elements of the project.

The newly made Gallagher Beach is close to downtown.

Achieving the Vision: Projects in the Buffalo Waterfront Corridor 41 Queen City Waterfront

CURRENT WORK Republic Steel/LTV Redevelopment South Park Restoration The former Republic Steel/LTV site has long been the target of redevelopment efforts. Originally proposed by Frederick Law Olmsted The most celebrated was the “Tomato as a waterfront park, South Park remains an Republic” hydroponics facility, which ceased important site in Buffalo’s Waterfront operations in 2002. Redevelopment for Corridor. Major renovations have been com- industrial use continues to be a priority. With pleted for the botanical gardens complex in approximately 1,200 acres, this property will the park. The goal of the Buffalo Olmsted provide an enormous reserve of land for Parks Conservancy is to leverage investments industrial development and expansion for by Erie County in the Botanical Gardens and Buffalo and save waterfront sites for more recreate Olmsted’s arboretum to give visitors appropriate uses. An additional concept in a complete indoor and outdoor horticultural the planning legacy calls for creation of an experience. A portion of the park’s pinetum Environmental Center and Park on the collection has been replanted and more than Buffalo River at this site, but no entity is 15,000 plants will be installed as the park’s currently working towards its creation. LTV wetland garden reemerges. Steel and Hanna Furnace recently agreed to Future funding will pay for interpretive sig- a $16.5 million clean-up and to transfer the nage, species markers, guidebooks, a docent site to Steelfields Ltd. for clean-up and training program, and a horticulturalist to care commercial redevelopment. The planned new for the collections. Related proposals include arterial road that is part of the Southtowns new street and bicycle connections from Connector project will provide enhanced South Park to the Lake Erie waterfront and access to these sites. an expansion of the South Park coastal zone review area. Taken together, this work prom- ises to advance public access, environmental restoration, transportation improvement, and to some extent, economic development goals for the waterfront.

An early draft alternative of the master plan for Buffalo’s South Park. This park along with the other Olmsted Parks, is slated for restoration by the Buffalo Olmsted Parks Conservancy. (Source: The Urban Design Project and Trowbridge & Wolf, PC)

42 Achieving the Vision: Projects in the Buffalo Waterfront Corridor A Strategic Plan for Transportation Improvements

EMERGING PROJECTS part of the South Buffalo Redevelopment Plan. Related concepts envisioned camp- North Outer Harbor Developments/ grounds, playfields nearby, and a series of Buffalo Lakefront Development transportation improvements including Much of the Outer Harbor is owned by the improved design and physical linkages to the Niagara Frontier Transportation Authority. In Seaway Trail. The main proposals serve goals 2004, they advertised a request for proposals, for public access and environmental repair. selected three consultant teams, and had Other concepts also support recreation goals, these teams propose waterfront development economic development, and transportation. strategies for the area from the Seaway Piers Expansion of the nature preserve is already to the Inlet north of Harvest Queen including occurring, in a sense, by default. Poor the Bell Slip. A team lead by OPUS, with drainage to the east of the preserve in the Uniland and VOA, were selected for a former Lehigh Valley Railroad yards has scheme that included marinas, a new caused the formation of new wetlands, making convention center, hotels, a sports complex, the property unsuitable for other uses. cultural institutions, and commercial and residential development. Public support LONGER TERM VISIONS for action at this site is intense; public preferences for open space and direct Outer Harbor Point waterfront access are unequivocal, and Leading proposals for this site call for a hence there are serious reservations from “Lighthouse Park,” providing access to the the environmental and quality of life historic China Light and necessitating some community regarding the extent of accommodation by the U.S. Coast Guard. development in OPUS’s approved proposal. Other proposed uses have included an educa- Because it is a large, mainly vacant, and sin- tion, research, or science center, and a center gle-ownership parcel directly on the water- for wood boat design. The Coast Guard has front, this site has drawn intense interest leased the lighthouse to a citizen group to through a long series of planning processes. facilitate restoration, and they provide limited Past proposals are contained in the NFTA access to the structure. However, more exten- Outer Harbor Development Plan (1988) and sive access to the lighthouse, and additional include public access, open spaces, residen- development, seem desirable. Continued tial, retail, and office uses. Other proposed collaboration with the Coast Guard, additional uses have included light industrial facilities. planning, and fund-raising will be necessary to fulfill potential for public access and Work on a waterfront pedestrian and bike economic development. trail is moving forward. Improved access to the site is dependent on Route 5 and South Outer Harbor Fuhrmann Boulevard improvements. Park elements of any development at this site This site encompasses the former Port of Buffalo terminal area, currently home to the might be incorporated in the State Park Euro United facility, and the Freezer Queen approved in 2004. Improved use of Seaway facility to the south. The South Outer Harbor Trail design elements is also being considered, site has most often been projected for some along with transportation improvements to kind of industrial development, including Fuhrmann Boulevard. research, warehouse, light industrial, and power generation. Alternate proposals call for Tifft Farm Nature Preserve Expansion an “events park” or open space uses with The creation of the Tifft Farm Nature Preserve potential inclusion in recent Outer Harbor in the 1970s was one of the earliest and State Park initiatives and increased linkages most celebrated waterfront developments in to the Seaway Trail. Continued and expanded recent history. Subsequent proposals called industrial uses would serve project economic for an expansion of the nature preserve as development goals. However, non-water-

Achieving the Vision: Projects in the Buffalo Waterfront Corridor 43 Queen City Waterfront

dependent or enhanced industrial uses break wall where creation of a new island would be inconsistent with LWRP policy. for recreation was proposed; and (d) various The planning documentation suggests some sites proposed for wind power generation. public opposition to additional industrial Although these would variously serve public development on the waterfront. This may be access, recreation, and economic develop- a moot issue, given the likelihood that exist- ment goals, none is under active considera- ing uses will continue in the foreseeable tion at this time. future, but continued consideration of future uses is warranted. Hopkins Street Hopkins Street is, in a sense, the back door of Cargill Pool Elevator the waterfront, forming the eastern boundary Several different and competing concepts of the South Buffalo Redevelopment Area. A have been proposed for the small peninsula proposal for its rehabilitation is motivated by on which Cargill Pool Elevator sits adjacent a desire both to improve the quality of water- to a small, NFTA-owned inlet area. Suggested front land as well as to protect adjacent resi- uses range from continued use for industrial dential areas. One recent plan envisions infra- storage and shipping, preservation and inter- structure investments and high-density resi- pretation of the grain elevators on site, use dential or extended care facilities. Some as a marina and boat storage facility, and a development activity is already taking place in passive park. There are no current plans for the area, including expansion of Sorrento the development of this site. However, Cheese. Redevelopment of vacant or under- potential exists to incorporate the inlet/boat utilized sites would be straightforward. While launch into the State Park proposed to the the site is not a public priority at this time, its north of the site and to improve linkages to redevelopment would serve economic devel- the Seaway Trail. opment, neighborhood connection, and transportation improvement goals. Independent Cement Independent Cement owns several large South Buffalo Landfill parcels between the NFTA’s property south Several plans have included proposals for the of Cargill Pool and adjacent to Bethlehem redevelopment of property adjacent to active Steel at the lake entrance to the Union Ship rail yards in South Buffalo. These sites include Canal. In two planning documents that a large landfill used for disposal of slag from mention the site, continued industrial use is steelmaking and an active auto wrecking anticipated. However, development of a yard. One prominent proposal was for rede- waterfront trail linking Bethlehem Steel with velopment of the area as a golf course. The development at the northern end of the area is also seen as a potential site for wind property (adjacent to NFTA harbor area) for power generation. It is not known what marina and water-enhanced uses is proposed. obstacles – legal, environmental, or otherwise Current uses and market conditions suggest – might exist to redevelopment. But, as a no new development in the near term, but “visionary” proposal, a golf course has the the strategic location of this site suggests a potential to transform the image of the area, long term opportunity. and facilitate public access, economic devel- opment, and environmental goals. Use of the Off Shore Area area might also enable elaboration of The Off Shore Area encompasses several Olmsted Parks concepts, and allow removal discrete sites including (a) inside the break of the golf course from South Park. wall where an Olympic standard rowing course has been proposed; (b) the Buffalo water intake, proposed as a site for hydropower generation; (c) outside the

44 Achieving the Vision: Projects in the Buffalo Waterfront Corridor A Strategic Plan for Transportation Improvements

Buffalo River Seneca Bluffs A project to restore and protect the Seneca RECENT ACHIEVEMENTS Bluffs, including a flood plain forest and emergent wetland, is under way with the Bailey Avenue/Confluence Open Spaces support of a broad coalition of grassroots Under the Buffalo River Greenway Plan, organizations plus the City of Buffalo, County several pieces of open space, including Old of Erie, and the New York State Department Bailey Woods Park, Confluence Point County of Environmental Conservation. It is an Park, and the proposed Mongovan Park important component of the Buffalo River Parcels and Southside School, located at Greenway open space system and is part of the confluence of the Buffalo River and the implementation of the Buffalo River Cazenovia Creek, would be connected to Remedial Action Plan. The Seneca Bluffs develop a waterfront public access park. Restoration supports goals for increased This project would advance goals for public access, passive recreation, and increased public access, passive recreation, neighborhood-to-waterfront linkages, as public education and neighborhood-to- well as environmental goals of habitat waterfront linkages, as well as environmental protection, flood control, and non-point goals of habitat protection, flood control, source pollution prevention. and non-point source pollution prevention.

Fishing at the Bailey Avenue habitat site is a favorite past time for neighborhood folks.

The Buffalo River runs through the City and its strategic location is the reason for its designation as a sub-area.

Seneca Bluffs is the latest habitat restoration site along the Buffalo River and it protects swallow nesting in the banks along the river.

Achieving the Vision: Projects in the Buffalo Waterfront Corridor 45 Queen City Waterfront

Stachowski Park/Houghton Park Ohio Street Buffalo River Greenway plans have suggested Ohio Street in the Old First Ward is a crucial the expansion of Stachowski Park to include waterfront site, offering opportunities for adjacent City owned properties along the expanded public access, but also implicated Buffalo River to the West Seneca border and in the planning of the Southtowns the extension of park trails to and along the Connector. The NYS Department of Buffalo River. Improvements to Houghton Environmental Conservation and Erie County Park were recently completed. Like the other constructed a public boat launch at Ohio Buffalo River Greenway projects, extension Street in the mid 1990s at the head of the of Stachowski Park would support goals for urban canoe trail. Additional proposals for increased public access, passive recreation, the area include further open space protection and neighborhood-to-waterfront linkages, as and restoration. Detailed plans for improve- well as environmental goals of habitat ments to Ohio Street itself are now in protection, flood control, and non-point preparation. Proposals for connecting the source pollution prevention. Buffalo River Greenway through this site to Downtown and the Riverwalk are impeded by private ownership of key parcels. Further Smith Street Public Access attention is warranted in order to maximize advancement of public access as well as The state Department of Environmental transportation improvement goals. Conservation constructed a wetland restora- Parts of Stachowski/Houghton Park are tion area with a small passive park/riverside very pastoral. public access point at the foot of Smith Street in 1996. Additional proposals for improved access from the Valley neighborhood have also been completed. While much more ambitious concepts have been floated for marina-related mixed-use residential develop- ment, market limitations make such activities unlikely. Current open space and public access plans advance public access, neighbor- hood connection, and environmental restoration goals.

The Smith Street Habitat site sits across the Buffalo River from the The Ohio Street Boat Launch was the first habitat and public Concrete Central Grain Elevator, an important industrial building access site developed after the acceptance of the Remedial Action on the National Register of Historic Places. Plan (1988) to clean up the river.

46 Achieving the Vision: Projects in the Buffalo Waterfront Corridor A Strategic Plan for Transportation Improvements

CURRENT WORK EMERGING PROJECTS

Buffalo River Clean-up Cazenovia Park & Greenway There are a large number of current proposals A full-fledged restoration plan for Cazenovia for the clean-up of the river channel itself, Park was completed in 1997 and the Buffalo including remediation of contaminated sedi- Olmsted Park Conservancy hopes to begin ments, remediation of inactive hazardous construction on Casino renovations in 2005 waste sites, mitigation of non-point sources, based upon community programming goals. improving stream water quality monitoring, The Conservancy is also working with South control of municipal and industrial waste- Buffalo Alive, which painted the interior of water facilities, elimination of combined the Cazenovia Park Shelter House in 2002 sewer overflows, restoration of fish and and is raising funds for the building’s restora- wildlife habitats, and expansion of the coastal tion. In addition, the Buffalo River Greenway review zone. In 2002, the Buffalo River and the Seneca Plan call for the creation of a Partnership was established to coordinate greenway trail system linking the Park to the efforts to address the River’s contaminated Buffalo River. Some editions call for the sediments. Currently, the Buffalo Sewer restoration of Cazenovia Creek’s natural Authority is developing a remedial action banks as a habitat, erosion control, and non- The process of cleaning up the Buffalo plan for the City’s Combined Sewer Overflow point source pollution prevention project. The River continues with public involvement. (Source: Buffalo Niagara Riverkeeper) System, a major source of river pathogens. park restoration and Greenway development Funding for implementation of a Remedial projects would advance goals for improved Action Plan under the direction of the Buffalo public access and recreation opportunities. Niagara Riverkeeper has greatly improved Moreover, the restoration of the park would coordination of remediation efforts. Restoration facilitate the City’s efforts to market the projects will advance not only environmental Olmsted system as a destination. Creek bank goals, but also broad public access and restoration would meet Buffalo River economic development goals as the River Remedial Action Plan (RAP) and LWRP habitat affects Erie Canal Harbor restoration efforts. and erosion control environmental goals.

Seneca Street Business District Grain Elevator Preservation and Interpretation The Seneca Street business district and the surrounding residential neighborhood have Buffalo’s ensemble of grain elevators has been the subject of planning and program- been the subject of a variety of proposals, ming for revitalization. Buffalo “Live Zone” including an industrial heritage museum, and Empire Zone designations are in place, preservation, and for continued industrial use. and a neighborhood plan was released by Since they are located along the river and on South Buffalo Neighborhood Housing Services the harbor, these comprise not so much an (NHS) in 2002. Formation of the Greater individual site as they do a collection of a South Buffalo Chamber of Commerce with type of building. The State Preservation Board its Seneca Street sub-committee and a façade and approved the program funded by the district council creation of a multiple property listing for the member has given a jump-start to revitaliza- Grain Elevator District in 2003. In addition, tion on Seneca Street. Hillery Park Academy the Concrete Central and Wollenberg Grain has also been designated for renovation. Elevators were placed on the National The confluence of these efforts suggests an Register of Historic Places. Development of opportunity to advance goals of economic interpretive sites, materials, and programs development and neighborhood/waterfront would involve relatively modest investments. connections. Preservation or adaptive reuse of structures

Achieving the Vision: Projects in the Buffalo Waterfront Corridor 47 Queen City Waterfront

would be expensive, but potential for Old First Ward advancement of economic development The Old First Ward is a crucial waterfront goals through heritage tourism is clear. More neighborhood. One only needs to visit there attention is needed. to understand how close the relationship to the waterfront is. With the exception of the LONGER TERM VISIONS proposal, now abandoned, to relocate the to a site including the Father Concrete Central Peninsula Conway playground, there is little in the An unusual variety of proposals have been planning legacy that deals with the Old First advanced over the years for the Concrete Ward. The neighborhood was the topic for Central Peninsula, including “exclusive a University at Buffalo graduate student residential” development, passive open investigation in the spring of 2003, but space, wind energy generation, and develop- otherwise has been neglected. Within the ment as an industrial heritage site. A variety framework of resident desires for neighbor- of problems constrain these proposals, includ- hood stability, however, it is possible to ing lack of access, lack of utility service, imagine a range of projects including improved floodplain location, and conflicts with existing waterfront access, support for housing rail service. Strongest public support exists for rehabilitation, and heritage interpretation, designation, preservation, and interpretation among others. of grain elevators as industrial heritage resources, combined with open space preser- vation. Public ownership would seem to The Valley facilitate such a development. Promotion Like the Old First Ward, The Valley is intimate- of economic development and environmental ly a waterfront neighborhood and its com- protection goals would go hand in hand in munity center connects directly with the this case. Much further development will Smith Street Habitat Restoration site. One of be required. the main streets of The Valley, Smith Street, terminates at the bank of the Buffalo River. It is also directly connected to and impacted Katherine Street Peninsula by Buffalo’s central inter-city transportation A large number of proposals have been made corridor, I-190. This neighborhood, too, has for this site but within a narrow range of drawn little attention from planners, and like concepts, including mixed-use development, the Old First Ward seeks stability and protec- open space conservation, a nature preserve, tion. The only current proposal for The Valley and a beach. Alternative concepts have involves one pending school renovation. included retaining industrial activity as well as However, it is also possible to imagine development of wind power generation. The improvements to housing, waterfront access, limited space needs of existing industries may and transportation access in The Valley. accommodate open space conservation and Buffalo River Greenway trail development in the short term. However, the peninsula’s Ogden Estates remote location, industrial legacy, and lack of The Buffalo River Greenway plans and the local development pressure may inhibit long N.Y.S. Department of Environmental term mixed-use development. Conservation’s Fish and Wildlife Habitat Inventory have both identified a large tract of undeveloped land west of South Ogden Street as a floodplain forest in need of conservation. Because it is a floodplain, other forms of development are considered infeasible. Including this site in the emerging system of

48 Achieving the Vision: Projects in the Buffalo Waterfront Corridor A Strategic Plan for Transportation Improvements

Buffalo River open spaces has strong public support. Like the others, it would support goals for increased public access, passive recreation, neighborhood-to-waterfront linkages, flood control, and non-point source pollution prevention. Recent sale of the parcel to a private party has compromised this Gateway / West Side possibility. However, the Trust for Public Land is exploring the new owner’s interest in RECENT ACHIEVEMENTS dedicating some portion of the site for conservation. Additional information needs Lakeview Hope VI to be developed to proceed with this project. A large-scale clearance and redevelopment of the pre-war public housing project, and areas immediately to the east, is nearing comple- tion. This federal Hope VI housing redevelop- ment is part of a national program to improve public housing through de-concen- tration and redevelopment. Pre-war public housing units have been largely demolished and new mixed-income housing has been constructed. Additional infill construction and rehabilitation is to follow. The project offers the potential of economic redevelop- ment and a vastly improved residential envi- ronment in a near-waterfront neighborhood. Amenities envisioned in other plans included improved connections across the I-190 to LaSalle Park. Incorporation of Seaway Trail National Scenic Byway design elements should also be considered.

The West Side of Buffalo is the Gateway to Canada because of the location of the Peace Bridge.

The Lakeview Project near LaSalle Park is a part of the HUD sponsored Hope VI initiative.

Achieving the Vision: Projects in the Buffalo Waterfront Corridor 49 Queen City Waterfront

Broderick Park Improvements CURRENT WORK Broderick Park at the south end of Squaw Peace Bridge Gateway Island is both an important point of public Plans for expansion or replacement of the access to the waterfront and an historic site Peace Bridge have been heavily contested of high significance. Some recent investments within the Buffalo region and across the have been made to improve public access to international border. Four major issues are the park, but much more work needs to be intertwined in this planning process: what done. Plans are in place for commemorative kind of bridge should be built and how wide interpretation of Underground Railroad should it be; where will the bridge land on events at Broderick Park. Phase I of the proj- either side; where the plaza and related ect received $80,000 from the City in July facilities will be located; and how and where 2000. Phase II, awaiting funding, will include customs and immigration functions will be a “Freedom Walk,” an interpretation time handled. Responsible agencies are leading capsule, a life size “Escape Scene,” bronze the decision-making process on these mat- statuary, a meditation garden and an exten- ters. In December of 2005, the specific bridge sion toward Bird Island Pier. In addition, alternative was recommended by the Peace several past planning efforts have identified Bridge Selection Jury to the Buffalo and Fort the desirability of providing access to the Erie Partnering Group and, in turn, to the north of Squaw Island along the east shore- Buffalo and Fort Erie Public Bridge Authority. line to complement the Riverwalk along the The recommendation, ratified by the west side. Conflicts with the Buffalo Sewer Partnering group was for a two tower cable Authority need to be resolved to implement stay companion bridge. The form includes a proposed multi-use trail to the north. two needle shaped towers that straddle the roadway, supporting a main span. Its design frames the Niagara River as a gateway to the Bird Island Pier binational region to the north of Buffalo and Bird Island Pier remains one of the great Fort Erie even as it provides a portal to successes of Buffalo waterfront development. Buffalo from Fort Erie just south of the exist- It protects commercial and recreation maritime ing Peace Bridge. The existing structure will traffic in the Black Rock Channel, provides continue to serve as the gateway to Ft. Erie fishing, birding, and walking opportunities from Buffalo. Formal approvals on the bridge for visitors, and offers extraordinary direct concept recommendations are subject to the access to the river with views of the lake, normal course of environmental impact Downtown, the Peace Bridge, and Canada. reviews on the project. Swimming, however, is not permitted. The The choice of a bridge, location, and design Bird Island Pier separates the Black Rock current proposals call only for maintenance are central to the Waterfront Corridor channel from the Niagara River. of the pier. Initiative’s goal of making a great international gateway. Connections to I-190 for through traffic are essential, and connections with Niagara Street will all have important conse- quences for neighborhood and economic development. (Note: This project is explored more fully in Volume 4 of this report.)

50 Achieving the Vision: Projects in the Buffalo Waterfront Corridor A Strategic Plan for Transportation Improvements

An early draft vision of the Peace Bridge Interim Plaza Improvements led to a Memorandum of Agreement on plaza and neighborhood improvements pending the construction of the new bridge and plaza.

The bridge concept, designed by Christian Menn was recommended by the Peace Bridge Design Selection Committee. (Source: Dr. Christian Menn and the Buffalo and Fort Erie Public Bridge Authority)

Achieving the Vision: Projects in the Buffalo Waterfront Corridor 51 Queen City Waterfront

Improvements to Cotter Point will open the area for public use. (Source: Hamilton Houston Lownie Architects, PC)

Cotter Point Developments improvements at the Buffalo Yacht Club and mixed-use waterfront development. In the A variety of proposals have been developed short term, the construction of the boathouse for the area sometimes known as Cotter is a priority, with $3.5 to $4 million in funding Point, just north of Porter Avenue and west for construction of the boathouse needed. of the I-190. These include a well-developed All of the above projects are generally proposal for a Frank Lloyd Wright-designed compatible and would promote waterfront boathouse for the West Side Rowing Club; a goals for public access, environmental similarly well-developed proposal for a Great improvement, and economic development. Lakes research station including a proposal Sponsoring organizations have established for creation of a wetland; and a recent call relationships to promote coordination among for the protection of the site as a significant the projects. ecological resource area. Other possibilities raised in the planning documentation include

52 Achieving the Vision: Projects in the Buffalo Waterfront Corridor A Strategic Plan for Transportation Improvements

Richmond Avenue Olmsted-designed Richmond Avenue marks the eastern boundary of the City’s mid- Niagara waterfront neighborhood, and the corridor is a major access route for the Buffalo State/Richardson complex. To stabilize the overall neighborhood and meet the hous- ing needs of employees in expanding local businesses, a recent program has focused on An illustrated view of Porter Avenue to demonstrates its providing better incentives for middle-income importance as a waterfront access point. home ownership in the Richmond Avenue corridor. High quality housing for middle- income families will provide an important Porter Avenue Waterfront Gateway economic development tool and help stabilize A number of past plans recognize the neighborhoods and connect them to the significance of Olmsted’s Porter Avenue as a waterfront. Reengineering the bike path, gateway – symbolic, aesthetic, and functional street improvements, signage, and restoration – between the city and the waterfront. of historic traffic circles have enhanced Alterations to roadway configurations, these efforts. improvements to the streetscape, including the use of Seaway Trail design elements, and new residential and mixed-use developments have been featured in these proposals. All of these can help rationalize traffic flow, stimulate investment in the vicinity, create more attractive routes to the waterfront, and promote the image of our international gate- way. The design of such improvements will be fairly straightforward, especially in the immediate vicinity of the Peace Bridge and plaza, once final decisions have been reached about the design and location of the bridge and plaza themselves. Such designs should Richmond Avenue, one of Olmsted’s boulevards, has already seen avoid, however, directing bridge traffic direct- improvements that add bike lanes while ensuring efficient traffic movement. ly on to Porter Avenue, where park and waterfront values might be compromised. The City has received $150,000 in State funding to develop a public access point at the foot of Porter Avenue at the convergence of the Niagara River with Lake Erie. The proposed observation point will serve as a gateway to LaSalle Park and will include lighting, signage, and street furniture.

Achieving the Vision: Projects in the Buffalo Waterfront Corridor 53 Queen City Waterfront

fully developed master plan for LaSalle Park that addresses these objectives. Likewise, improvements would meet the WCI goals of improving public access, natural environment, and transportation efficiency. The project is planned to be implemented in phases and is partially complete.

Front Park Restoration Restoration of this historic Olmsted Park has been a recurrent proposal in the planning legacy with strong public support and obvi- ous payoffs for dramatic waterfront visual access. Views of Lake Erie from Front Park are spectacular, described by Olmsted as “approaching art.” The long term vision for Front Park includes the restoration of the park Massachusetts Avenue is one of the City’s waterfront street slated and contiguous Fort Porter, the return of the for improvements. (Source: Wendel Duchscherer Architects and Engineers) landscape connection to the waterfront, and the cultural tourism marketing of this historic Olmsted landscape. Consistent with the Buffalo Olmsted Parks Conservancy 20-Year Massachusetts Avenue Restoration and Management Plan, the brick A series of grassroots planning efforts in recent park building that impeded the view of Lake years have mobilized residents around projects Erie and the Niagara River was demolished in in neighborhood redevelopment, social 2004. Replanting of the Commodore Perry services, and micro-business enterprise. As a statue grounds is pending. In conjunction near-waterfront neighborhood – Massachusetts with National Scenic Byway Seaway Trail Avenue ends at Niagara Street, opposite the design elements, interpretive signs have been Peace Bridge – development here can created for the park, which will give residents contribute to economic development and and visitors a sense of the area’s history. neighborhood-to-waterfront connection goals.

EMERGING PROJECTS Niagara Bluffs Redevelopment The stretch of Niagara Street from the Peace LaSalle Park Restoration Bridge north to Forest Avenue presents some As Buffalo’s most prominent waterfront park, important development opportunities, as it should not be surprising that an extraordi- identified in several planning processes. The nary number and variety of waterfront plan- position of Niagara Street atop a high bluff ning efforts have focused on its improve- overlooking the river offers breathtaking ment. Most of these proposals have focused waterfront views. The historic brick building on two major objectives: first, to improve stock, reasonably priced, provides an oppor- the facilities in the park, including roadway tunity for commercial development, as circulation inside the park, and second, to suggested in some of these plans. Current strengthen the physical connections from the transportation access is good. Some specific City to the park across or over the I-190 and to proposals have been made to deal with traffic the Erie Basin Marina. Incorporation of Seaway and parking. In addition, incorporation of Trail National Scenic Byway design elements is Seaway Trail National Scenic Byway design also recommended. The City of Buffalo has a elements is proposed. However, most proposed

54 Achieving the Vision: Projects in the Buffalo Waterfront Corridor A Strategic Plan for Transportation Improvements

industrial uses would conflict with the LWRP, economic development. A push-cart pilot which suggests the development of “water- project called the New World Street Market dependent” or “water-enhanced" uses in the will be held this summer to capture the diver- area to capitalize upon scenic views. This sity of the area by offering ethnic food and concept needs much further development, wares. Connecticut Street, like Massachusetts although private sector plans may already be Avenue, connects almost directly to the Peace well-advanced. Bridge/Front Park area. Its redevelopment is expected to strengthen neighborhood links to the waterfront. Grant/Ferry Business District The viability of the Grant/Ferry business LONGER TERM VISIONS district is closely linked to the waterfront’s Virginia/Carolina Interchange Revisions mid-Niagara corridor and the Scajaquada Expressway Grant Street interchange. The The Virginia/Carolina interchange of the district has significant potential for develop- Niagara Thruway is often seen as an ment as an important neighborhood-to- unfortunate rupture in the neighborhood waterfront gateway. It is already an important fabric of the Lower West Side. A variety of shopping area with more than ninety stores proposals have been made to repair that and 300,000 square feet of retail space, rupture, including reconfiguration of on- and similar in size to a small suburban shopping off-ramps, reestablishment of perpendicular mall. Investments in this area could both streets, and development of a new park. create a needed linkage with the waterfront Reconfiguration of the interchange would (the entrance to Broderick Park on Squaw facilitate improved access to the waterfront Island is just a few blocks away) and build across the Niagara Thruway, and would calm the local retail economy. Several studies have traffic entering and exiting the neighborhood. been conducted and some programs are Improvements should capitalize upon Niagara in place. Additional efforts in this area are Street’s status as part of the Seaway Trail warranted. National Scenic Byway. Modifications to the interchange could be accomplished without major changes in the alignment of the Connecticut Street Business District Thruway itself. Significant further develop- ment of this concept is required to move The Connecticut Street business district and forward. its adjacent neighborhoods are the subjects of intense planning by the West Side Planning Collaborative. The Connecticut Lower Niagara Street Redevelopment Street Association has forged alliances with the Collaborative, neighborhood block clubs, The section of Niagara Street between West Side Neighborhood Housing Services, Porter Avenue and City Hall, and especially and D’Youville College to encourage housing the section between Carolina and Maryland, initiatives and economic development. has been the focus of a very large number Currently designated as a City of Buffalo of proposals focusing on commercial revital- “Live Zone,” Connecticut Street is also in ization and streetscape improvements, with the Empire Zone and the Federal Renewal some residential development. The center- Community. While the most recent public piece of these proposals, a new Tops Market, investments there have been residential, new was opened in 2003. However, further street lights are forthcoming. The basic infra- commercial development, new housing structure of a neighborhood shopping street construction, and public infrastructure remains, with some remaining retail activity. A amenities are needed to fulfill goals of water- Market Analysis has been completed by BERC front economic development, neighborhood and is being used as a blueprint for future revitalization, and rationalization of city

Achieving the Vision: Projects in the Buffalo Waterfront Corridor 55 Queen City Waterfront

center transportation infrastructure. As with other Niagara Street projects, incorporation of Seaway Trail National Scenic Byway design elements is encouraged.

Lower West Side Black Rock / Riverside / Neighborhood Improvements Scajaquada A variety of proposals have been made for the residential areas of the Lower West Side focusing on housing rehabilitation, infill RECENT ACHIEVEMENTS construction, public infrastructure invest- George Washington Park/ ments, and traffic calming. The Lower West Niagara Street Reconstruction Side is another important near-waterfront neighborhood that will benefit from physical This linear park, with accompanying revitalization, economic development, and streetscape improvements, is a great example stronger connections to the waterfront. of a modest project that has made a major Housing design guidelines have been fully difference in how the City connects to the developed, but need stronger implementa- waterfront. George Washington Park provides tion. Traffic calming proposals have been an opportunity to look across the barrier that discussed extensively in the community. is the I-190, providing visual access to one Some public investments have been made. of the great vistas on the Niagara River. However, both short term coordination and Redesigned crosswalks on the busy main longer term development of improvement thoroughfare civilize the street and strengthen concepts are needed. the connection between the neighborhood and the water. The incorporation of Seaway Trail design elements such as daffodil planting has also been proposed.

George Washington Park is a linear green strip that separates the I-190 from Niagara Street in Riverside.

Projects for the Black Rock/ Riverside / Scajaquada sub-area connect the Scajaquada Creek bike path to the Black Rock Canal.

56 Achieving the Vision: Projects in the Buffalo Waterfront Corridor A Strategic Plan for Transportation Improvements

Ontario Street Boat Launch/ Cornelius Creek Park A range of improvements has been made at this site over the past ten years, expanding public access and enhancing public amenities. These include investments in the Ontario Street boat launch, the Niagara Street/Ontario Street intersection, and extensions of the Riverwalk at Cornelius Creek Park. These

have helped take great advantage of a mod- The north end of Squaw Island is one of the newest parks in the est opportunity to provide public access to city, built on a remediated site between the Niagara River and Black Rock Canal. the waterfront and connection to the adja- cent neighborhood. Further improvements, especially better landscaping and more sensitive paving at the boat launch, are worth Squaw Island Park investigating, particularly where such elements reinforce the Park’s entrance from the Development of a park on the north end of Seaway Trail. Squaw Island has been a persistent demand by waterfront advocates for more than fifteen years and a frequent proposal in the waterfront planning legacy. In 2001, the City of Buffalo designated the property as public parkland. The DEC has completed the remediation of contaminants associated with the use of the island as a landfill. Investments in parking and pathways have been made. Additional fund- ing stabilized surface soils with vegetation, limited unauthorized vehicular access to the site, provided limited passive park furnishings, provided improved access from and design improvements to the Seaway Trail/Niagara Street corridor. Public access to the park through Buffalo Sewer Authority property is also desired. Completion of this project is a major victory for waterfront public access, environmental quality, and recreational The Ontario Street Boat Launch is one of the few public boat access points in the City. opportunity.

Achieving the Vision: Projects in the Buffalo Waterfront Corridor 57 Queen City Waterfront

CURRENT WORK

Riverside Park Restoration Planning work spanning two decades has repeatedly recognized the importance of Olmsted’s Riverside Park in providing physical Foot of Hertel Avenue and visual access to the Niagara River, as well as the need to mediate the relationship This site encompasses the Watergate apart- between the park and I-190. Significant ment towers, the publicly owned Towpath progress has been made between 1995 and Park, and Rich Marina. Both the apartments 2002 in implementing a master plan for and the marina are owned privately. The redevelopment of the park, Olmsted’s last first phase of work on Towpath Park is com- design in Buffalo. The Buffalo Olmsted Parks plete and partial funding for the completion Conservancy 20-Year Restoration and of the park master plan has been received. Management Plan calls for the restoration or Extensions of the Riverwalk at this site are interpretation of the historic minnow pond also complete. This is another example of how public access to the waterfront has Towpath Park its at the foot of Hertel Avenue area of the park and the creation of an along the Niagara River. amphitheater near the original center axis of been achieved by piercing the “wall” that is the park. A number of proposals have also the I-190 Thruway. However, past planning been made to improve connections between work identifies much greater potential for this the park and the Riverwalk on the other side site. Park development needs a push; physi- of the I-190. A large-scale deck might be too cally integrating housing, a marina and public costly, but an improved pedestrian bridge park uses demands exploration; and more would be very welcome. Finally, incorporation intensive development should be considered. of Seaway Trail design elements has been Incorporation of Seaway Trail design elements proposed. has also been proposed.

Tonawanda Street Corridor Considerable planning work has gone into redevelopment of old railway and industrial properties along Tonawanda Street. These would appear compatible with other projects, such as the River Rock industrial park. More importantly, development of this land will provide an opportunity for uses that are not water-dependent or water-enhanced to relocate away from the immediate water- front. These will be predominantly industrial, but some opportunity for residential develop- ment also exists. This site is central to meet- ing the economic development and trans- portation improvement goals of the Waterfront Corridor Initiative.

Riverside Park, one of Olmsted’s last parks for the city, is undergoing restoration. This draft plan for interim improvements is one of a series of alternatives being explored by the Buffalo Olmsted Parks Conservancy. (Source: The Urban Design Project and Trowbridge & Wolf, PC)

58 Achieving the Vision: Projects in the Buffalo Waterfront Corridor A Strategic Plan for Transportation Improvements

Delaware Park Delaware Park straddles both the Scajaquada Expressway and its namesake, the Scajaquada Creek, some distance inland from the Niagara River. A fully developed master plan has been prepared for Buffalo’s greatest Olmsted park visual impact of park improvements to those and implementation is ongoing. Preliminary who travel this corridor as part of their daily restoration of the 1914 Parkside Lodge and routine (more than 20,000 cars drive on the creation of the signature Rose Garden Parkside Avenue every day).” playground have been completed. In 2004, Restoration of the Rumsey Woods shelter is the Buffalo Olmsted Parks Conservancy expected to follow. The park is a participant began improvements to the “Parkside in the Olmsted Crescent, a coordinated Perimeter” designed to “create a beautiful marketing effort for geographically concen- Olmstedian landscape first impression to trated arts, culture, and heritage resources. visitors to Delaware Park and its neighboring In addition, the Scajaquada Corridor Study cultural institutions and to demonstrate the and possible redesign may have major positive impacts on both the park environment and transportation efficiency.

Plans are also being developed for the restoration of Delaware Park, the largest of Buffalo’s Olmsted Parks. The Urban Design Project and the UB Center for Computational Research have developed large interactive computer models of all the parks to assist in the planning effort.

Achieving the Vision: Projects in the Buffalo Waterfront Corridor 59 Queen City Waterfront

EMERGING PROJECTS

Scajaquada Creek Clean-Up Because Scajaquada Creek is located along a heavily developed transportation corridor and H.H. Richardson Restoration has been highly manipulated, water quality, hydrologic regime, wildlife habitat, and overall Located between the Scajaquada Expressway stream health have been seriously degraded. Grant Street and Elmwood Avenue exits, the Two projects have been completed to Buffalo State College and H.H. Richardson- improve the health of the Creek channel: designed Buffalo State Hospital complex the separation of the Creek from Hoyt Lake constitute an important regional heritage in the late 1970s to reduce the amount of and educational resource area. This area has raw sewerage entering the lake, and the a number of pending projects that can help remediation of contaminated sediments contribute to meeting economic develop- located beneath the Scajaquada Expressway ment, neighborhood improvement, and in 1999. Today, the Creek remains an public access goals. impaired water body with much work to be Governor Pataki allocated $100 million in his done. The 2002 Scajaquada Creek 2003-2004 budget to rehabilitate the historic Management Plan developed by a Watershed twin-tower Buffalo State Hospital complex Advisory Council provides management and support efforts to find new uses such strategies, goals, and action items to restore as a combined Frederick Law Olmsted School and protect the ecological quality of the Complex, a new Burchfield-Penny Art Center, watershed. In addition, some consideration and a Buffalo architectural museum. In has been given to extending coastal zone addition, the State Dormitory Authority has management regulation to Scajaquada announced a $4 million down payment on Creek, and this should be pursued. court-ordered preservation of the facility. Renovations to McKinley Vocational High School and Campus West are included in Tonawanda/Ontario Business District the Joint Schools Construction program. The business district surrounding the intersec- The economic revitalization of the site is tion of Tonawanda and Ontario Streets has connected to the success of the Olmsted been designated by BERC as a city "Live Crescent, a coordinated marketing effort Zone." Redevelopment of commercial uses in for geographically concentrated art, cultural, this near-waterfront location can help achieve and heritage resources generally located the goals of economic development and along the Scajaquada Creek and Expressway. improved neighborhood/waterfront connec- tions. A program is in place and action is pending. The potential for the neighborhood Niagara Street is worthy of further effort. Several different plans have offered the suggestion that the section of Niagara Street between Tonawanda and Austin has signifi- cant potential for redevelopment. It is currently a mix of industrial, commercial, retail, and residential uses with some vacancies. Some of the businesses are marine-related (and therefore water-dependent) and the segment is a portion of the City’s Seaway Trail route. BERC has designated the strip as a “Live Zone” and action is pending. The potential is worthy of further effort.

60 Achieving the Vision: Projects in the Buffalo Waterfront Corridor A Strategic Plan for Transportation Improvements

LONGER TERM VISIONS

Harbour Place Successive planning efforts have identified the boating facility now known as Harbour Grant/Ferry Neighborhood Place Marina as an important site for devel- opment, including high-density residential There are no projects proposed in the plan- and mixed-use, as well as maritime uses. ning legacy for the neighborhood that Now home to a popular riverside restaurant, extends north of Forest Avenue and west of the site is privately controlled, and so are Grant Street toward the Scajaquada future development opportunities. However, Expressway and Scajaquada Creek. In recent Harbour Place Marina holds further potential years, the neighborhood has suffered signifi- for expanding both water-dependent and cant housing deterioration, abandonment, water-enhanced uses, including housing. The and demolition, as well as conversion of Buffalo Waterfront Corridor Initiative has a property for surface parking for Buffalo State potentially fruitful role to play in building the College. In the City of Buffalo classification public-private relationships required to inte- system, Grant/Ferry is a “rebuild” neighbor- grate private developments into a public hood. Given the proximity of the site to both waterfront. the creek and the highway, as well as the opportunities for industrial and educational campus development, a longer term look is Canal Locks warranted. Several major waterfront plans have proposed expanding public access to the Black Rock locks area through extensions of the Riverwalk and connecting across the canal to Squaw Island. These development concepts have also included residential and mixed-use projects at the site. Improved site and trail design could mitigate the current isolation of the site from Niagara Street and local neigh- borhoods, serving economic development, public access, neighborhood/waterfront link- age and recreation goals. Involvement of the U.S. Army Corps of Engineers, who operate the locks, would be crucial. Recently the Army Corps of Engineers repaired the Canal wall along Squaw Island to seal leaks along with other minor improvements. A canal locks interpretive facility should be given seri- ous consideration.

Achieving the Vision: Projects in the Buffalo Waterfront Corridor 61 Queen City Waterfront

peace bridge gateway improvement

The Shared Border Alternative sketch, looking east from the Niagara River, was developed to illustrate how this option would bring visitors into Buffalo through a large welcoming park.

A Great Neighborhood and Bridge to facilitate trade and access within and through our bi-national region, as well Grand Gateway for Buffalo as create and maintain great neighborhoods and a grand gateway to Buffalo and the A Community Vision for the City of Buffalo United States. When England’s Prince of Wales came to The Peace Bridge Expansion Project is one of Buffalo in 1927 to help dedicate the Peace extraordinary importance for Canada and the Bridge, the newly-constructed span United States, for Southern Ontario and connected a grand and prosperous city with Western New York, and for Fort Erie and a magnificent scenic route to Niagara Falls. Buffalo. Facilitating the flow of goods and In the nearly eight decades since then, visitors and promoting investment and our commerce and tourism have expanded, bi-national region’s economic health depends traffic has increased, and the Peace Bridge in significant degree on the success of this plaza has become a harsh, harried, and project. For the City of Buffalo, as for our unhealthy portal to our city, region, and neighbors in the Town of Fort Erie, the stakes nation. Past investments in public infrastruc- are even higher. The bridge and its operations ture have too often advanced transportation greatly affect the environmental quality and efficiency at the expense of community community character of adjoining neighbor- quality of life. But as we contemplate further hoods, as well as the health of our inter- such investments, we recognize that it related economics. doesn’t have to be that way. We can have efficient transportation across the Peace

62 Peace Bridge Gateway Improvement A Strategic Plan for Transportation Improvements

As a partner with the Town of Fort Erie and the Buffalo and Fort Erie Public Bridge Authority (PBA), the City of Buffalo has a responsibility to make sure that both short term and long term investments in bridge and A Grand Gateway plaza meet the needs of not only those who Creating a grand gateway means choosing will cross the bridge, but of the immediate a bridge and plaza scheme that provides an neighbors of the bridge and plaza and, indeed, opportunity to make a bold statement in of our entire community. In short, bridge architecture and landscape and to announce expansion must provide both a grand inter- to arriving visitors that they are coming to national gateway and great neighborhood for a great city. It also means preserving and the City of Buffalo. Nothing less will do. opening great vistas to Downtown, neighbor- hoods, parks, and waterfronts for those who A Great Neighborhood come to our city. Just as importantly, creating a grand gateway means making efficient links Making a great neighborhood at the Peace to the regional highway network and provid- Bridge Plaza means taking the first steps ing connections to the local street system needed to restore a distressed area, including: that are clear, legible and inviting. reducing the negative air quality impacts of bridge and plaza operations, particularly The best scheme for the U.S. Peace Bridge caused by idling trucks; reversing the damag- Plaza will also ensure greatest protection of ing health impacts related to degraded air historic architecture and cultural resources, quality; reducing traffic and noise levels or including: the recovery and interpretation of mitigating their impacts; and providing an the site of Fort Porter; maximum preservation attractive and effective buffer between bridge and recovery of public parkland, especially operations and the neighborhood. It also Front Park; and improvement of connections means minimizing the amount of land that between neighborhoods and parks, park- bridge-related facilities take up in our city’s ways, and recreational pathways. parks and residential areas, limiting displace- ment of residents and businesses, avoiding demolition of homes and buildings, and minimizing the loss of taxable property.

“Vintage Buffalo” photographs of the Peace Bridge as gateway to the United States reveal a scenic route to Fort Erie and Niagara Falls from a prosperous Buffalo. (Source: The Buffalo Olmsted Parks Conservancy)

Peace Bridge Gateway Improvement 63 Queen City Waterfront

Finally, ensuring that a new Peace Bridge and plaza contribute to making a great neighbor- hood will mean maximizing the opportunities for local economic development by capturing bridge-related business potential at or near management facilities and operations. the plaza, reinforcing Niagara Street as a Therefore we need to plan for the inevitability gateway to the city and especially of Shared Border Management. While we Downtown, preserving land and building don’t know when Shared Border stock nearby for redevelopment, and Management will be accomplished or even providing efficient transportation. exactly how it will work, we need to choose a course of action that best preserves our The Goal: Shared Border options for achieving our vision and goals Management (SBM) under SBM. In keeping with the request by the City of Our collective future in a global economy Buffalo to prepare alternative plaza scenarios, based on trade and transportation will be we developed designs for three alternatives: shaped by the marriage of cooperation and North Plaza, South Plaza and SBM. The North technology that is already taking place at the and South Plaza alternatives replicate customs Peace Bridge border, transforming how we on both sides of the border and each has manage one of the busiest U.S./Canada bor- severe drawbacks. However, the South Plaza ders. Both the U.S. and Canada have con- will preserve more of the existing neighbor- cluded that Shared Border Management is hood while we continue to work for Shared superior to the old way of doing things, not Border Management. Choosing the North only for those who live near the U.S. Peace Plaza option would not foreclose the possibili- Bridge Plaza, but also for those across ty of a Shared Border Management solution Southern Ontario and Western New York, and in the future, but it would destroy one of the indeed, for people across our two nations. main reasons for pursuing it – to preserve Expanded bridge capacity alone will not solve and improve our neighborhoods. our cross-border transportation problems. This has been clearly demonstrated by the recent experience at the Blue Water Bridge linking Port Huron, Michigan and Sarnia, Ontario, where traffic volumes outstripped capacity soon after completion of an expan- sion project. What is critically needed is coop- eration, reform, and modernization of border

64 Peace Bridge Gateway Improvement A Strategic Plan for Transportation Improvements

Interim Plaza and Neighborhood NIAGARA RIVER Improvement Plan

Reconciling Short Term Needs and Long Term Vision The Peace Bridge holds a strategic position in the region, connecting the United States and Canada, the Niagara Peninsula and Western New York, and the Town of Fort Erie and the City of Buffalo. The connecting highway network joins the economic and population centers on the two sides of the bridge. The current plaza condition, however, is a harsh environment composed of paved surfaces. It has virtually no landscaping and lacks any feature to screen the neighborhood physically LAKE ERIE and visually from the plaza operations.

The Peace Bridge is the International Gateway in the Buffalo Corridor.

This aerial shows the existing conditions at the Peace Bridge in 2002.

Peace Bridge Gateway Improvement 65 Queen City Waterfront

Time is of the essence for our neighboring city and town, for our greater bi-national Niagara region, and for our two nations, in building a great bridge and plaza. Yet, we also must remember that the decisions we make today will be with us for the rest of this century. We have time to make the right Our community’s vision for a great neighbor- decision and that time is now. hood and a grand gateway can be advanced in the short term within the framework of Changes need to be made immediately on interim plaza improvements planned by the the bridge while longer term decisions PBA. Improved landscaping on the plaza, are being made. Nevertheless, short term added landscape features between bridge decision making must be consistent with the plaza operations and Front Park, removal of pursuit of the long term vision. Specifically, excess pavement from the park, development the investment and design decisions made in of an architecturally attenuated wall to pro- conjunction with interim improvements must vide a visual screen between bridge opera- not impede long term efforts to achieve the tions and the neighborhood, and creation of ultimate goal of Shared Border Management a new Busti Avenue boulevard and linear and must ensure that all actions have minimal park are practical ways for the City and the negative impacts on communities adjacent Public Bridge Authority, working in coopera- to the bridge plazas. tion, to achieve the community vision.

As-built drawing of Olmsted’s Front Park illustrates the park design prior to the construction of the Peace Bridge and the creation of the I-190. (Source: Buffalo Olmsted Parks Conservancy)

66 Peace Bridge Gateway Improvement A Strategic Plan for Transportation Improvements

Toward this end, the City crafted its vision for a greener, safer, and more attractive interim plaza with related neighborhood improve- ments. This work formed the basis for reach- ing a consensus on the interim improve- ments, formalized by a Memorandum of Interim Improvements Agreement (MOA) between the PBA and the The City has worked with the Buffalo and City. What follows is graphic description of Fort Erie Public Bridge Authority to reach the accepted enhanced design concepts and consensus on a strategy for interim improve- consensus plan for interim improvements to ments to plaza, bridge operations, facilities, the U.S. Peace Bridge and plaza accepted by and the neighborhood. These improvements the City and the PBA. As indicated earlier, the will be in place until the time a new bridge modest investments planned for the interim and plaza are completed. As presented in plaza should not be used to justify long term detail in of Volume 4 of the Queen City choices for the design and location of the Waterfront (Part 1: Interim Plaza), the strategy plaza. They are intended to be temporary. temporarily leaves the plaza in its current location, would require no additional acquisition of property, and would make no major changes in highway access to and from the bridge on the U.S. side.

The improvements to the existing Peace Bridge Plaza, demonstrated in this plan, are the basis for the Interim Strategy as outlined in a Memorandum of Agreement between the City of Buffalo and the Public Bridge Authority.

Peace Bridge Gateway Improvement 67 Queen City Waterfront

The existing bridge-related operations occupy 14.2 paved acres in the City of Buffalo, directly adjacent to a vital urban neighborhood. Directly south of the bridge plaza is historic Front Park, designed by Frederick Law Olmsted and listed on the State and National Register of Historic Places. The “As-Built” plan for the park (dated 1898) shows that the park originally sloped down to the Erie Canal before the highway, I-190, took its place. Baird and Moore Drives did The improvements to Front Park would be not exist, there were no tennis courts, and significant. There would be green space the park was connected to the neighborhood recovered by the consolidation of Moore and at Vermont Street. Baird Drives. Discussions since the signing of the Memorandum of Agreement indicate a The consensus plan provides for modest preference for consolidating Baird and Moore landscaping improvements on the bridge Drives, employing the western road (Baird plaza, a reconfigured intersection at Moore Drive) in lieu of Moore Drive to offer a further Drive and Vermont Street, and the develop- buffer to the neighborhood in the interim ment of a new duty free shop along the period. Those discussions also suggest an west side of Busti Avenue near the Vermont intention to retain two of the four tennis Street intersection. These PBA improvements courts. are confined to the bridge plaza itself. The Neighborhood Improvement Plan also The City of Buffalo’s vision for the interim calls for a tree-lined boulevard on Busti and plaza includes a continuous linear park Porter Avenues. It also calls for the demolition screening the plaza along Busti Avenue, of existing vacant and boarded housing lining connecting Front Park to Massachusetts Busti Avenue between Rhode Island and Avenue and north to Olmsted’s Bank, and Vermont Streets. This allows for the develop- reclaiming more of Front Park. ment of an effective landscaped separation The City’s Neighborhood Improvement Plan between the neighborhood and the plaza in area covers lands adjoining the bridge plaza the area of the most intensive bridge-related along Busti Avenue as well as Front Park. The operations. initial proposal for enhancements leading to the City’s plan would remove redundant roadways connections in and around the bridge area, and eliminate the tennis courts at the northeast corner of Front Park. The plan calls for a slender wall along the western side of Busti Avenue to create an attractive and complete visual buffer between the plaza and the adjoining neighborhood. It also calls for the buffer to serve as a linear park, using a narrower Busti Avenue north of Vermont Street with enhanced landscaping and a recreation path.

68 Peace Bridge Gateway Improvement A Strategic Plan for Transportation Improvements

These section studies compare the existing and draft proposed conditions on Busti Avenue near Porter Avenue (top) and Busti Avenue at Rhode Island Avenue (bottom) leading to the final agreed alignment.

Peace Bridge Gateway Improvement 69 Queen City Waterfront

Long Term Plaza and Neighborhood Improvement Alternatives The decision to adjust each of the PBA alter- natives was driven by a desire to make sure The International Waterfront Gateway that each one was as good as it could be on Neighborhood Improvement Program (Volume its own terms in order to provide a clear and 4 of the Buffalo Corridor Management Project fair comparison. We are basing our compari- report) includes a detailed description of the son on only those schemes developed in the three long term plaza alternatives as developed Buffalo Corridor Management Project as schematically by the PBA and as further refined by the City design team to simplify refined by the City of Buffalo design team. the evaluation and avoid any confusion Adjustments to these basic infrastructure dia- among different versions of basic schemes grams generated the PBA were made by the offered by the PBA. All of these changes City of Buffalo design team to include: addi- were made explicitly to fulfill the community tions to buffer areas; improvements to buffer vision and goals as enunciated by Mayor treatments; concepts for arrival buildings; Masiello. improvements to adjacent parks; and changes in local street connections, including Shared Border Management Alternative schematic designs for traffic circles, boule- vards, and other celebratory street elements. The Shared Border Management alternative will provide a dramatic gateway for visitors in which they arrive simultaneously in both the city and in a park. The alignment developed

The draft shared border site plan above was developed to demonstrate some of the advantages of a shared border accord including a smaller plaza footprint, good integration with local roads and the I-190, and substantial reclamation of Front Park. The final shared border alignment will depend on continuing design development.

70 Peace Bridge Gateway Improvement A Strategic Plan for Transportation Improvements

for this alternative was provided by the PBA. In this version, travelers would come directly off the bridge and into a grand ceremonial circle at Rhode Island and Niagara Streets. Building Program: The City of Buffalo Meanwhile, to the south or to their right design team has proposed that the duty free would be visible a recovered Fort Porter site shop and a visitor center building, along with and a rehabilitated Front Park. possible bridge-related office space, be con- structed as paired, linked, or integrated build- Land Area: Of the long term alternatives ings at the corner of Busti Avenue and Rhode considered, the Shared Border Management Island Street. These buildings would frame alternative makes by far the smallest footprint the urban gateway into the city at a proposed on the City – about fifteen acres with its “Friendship Square.” The duty free shop buffers – occupying only the north end of the would be accessible from the plaza; the existing plaza and extending just to Seventh visitor center would be entered around the Street between Massachusetts Avenue and block on Busti Avenue. Rhode Island Street. There would be only ramps and connecting roadways – no plaza Circulation system: As in all three long facilities – with the exception of a possible term alternatives, connections to the city auxiliary truck parking area and a U.S. duty street system through Front Park on Baird and free shop. Moore Drives would be eliminated. Other highway connections would be similar to existing arrangements. Ramps from I-190 northbound and to I-190 southbound would be shifted slightly to the north. A new ramp

The view of Buffalo at the gateway to the United States from the Peace Bridge as proposed in the initial shared border proposal.

Peace Bridge Gateway Improvement 71 Queen City Waterfront

from I-190 southbound would cross the Thruway at about Rhode Island Street, enter the plaza area, and provide access to local streets as well as to the bridge. Park and Buffer Improvements: The Shared Border Management alternative would make possible the full recovery and Street just south of Massachusetts Avenue. It interpretation of the site of the historic is possible that The Bank, an Olmsted Fort Porter. It would also allow for the most designed partial circle at the northern end of thorough restoration and replanting of Busti Avenue, could also be rehabilitated. It Frederick Law Olmsted’s Front Park including would no longer connect with Busti Avenue, reestablishment of Sheridan Drive; providing although it would with Massachusetts a full roadway loop into the park at Porter, Avenue, and it remains to be demonstrated through the park and out of it at Busti whether views from the spot would be Avenue and Rhode Island Street; restoration obstructed by the new or the existing bridge. of the historic Hippodrome; construction An alternative version that is currently under of a new Lake View House in the center development by the PBA is a Shared Border of the park; and development of a full Management scenario with a more northern network of pedestrian trails and bikeways landing for the plaza. This alternative will be through the park and connecting it to reviewed by the City design team when adjacent neighborhoods. made available by the PBA. This alternative would also allow for creation of a new park area just north of the duty free South Plaza Alternative site between Busti Avenue and Seventh The South Plaza alternative without a shared border accord provides a gateway into the city, an urban arrival, but without the recovered open space in Fort Porter offered by Shared Border Management. Travelers would enter the plaza much as they do now, but would join the city street system along a new boulevard on Vermont Street connecting directly to Niagara Street opposite the northwest corner of the Connecticut Street Armory.

72 Peace Bridge Gateway Improvement A Strategic Plan for Transportation Improvements

The South Plaza Alternative without the benefit of shared border management requires the use of more land to handle border security and customs.

The view of the South Plaza Alternative without shared border management.

Peace Bridge Gateway Improvement 73 Queen City Waterfront

Land Area: The South Plaza alternative would make the second largest footprint of the long term alternatives, at about thirty-five acres with buffers, more than twice the size of Shared Border Management. The South Plaza would occupy all of the existing plaza Connections to and from the highway system plus most of two city blocks facing Busti would be similar to the existing arrangement. Avenue between Vermont Street and However, a ramp from the southbound I-190 Massachusetts Avenue. The City design team will loop over the Thruway just short of the has proposed taking at least one additional Porter Avenue bridge and enter the plaza half-block – the west side of Seventh Avenue from the south. From there it would be possi- between Vermont and Rhode Island Streets – ble to reach both the bridge and the city and approximately three additional acres to street system along Vermont Street. serve as buffer between the neighborhood Commercial traffic would be directed onto and the plaza. There is a difference between Niagara Street. the PBA and City’s design team on the Buffalo footprint. The City’s concepts for the Park Improvement: Recovery of the Fort South Plaza alternative are elaborated in site Porter site will not possible under the South plan and bird’s eye view perspective format. Plaza alternative and only a partial restoration of Front Park can be accommodated. It will Building Program: Similar to the Shared be possible to restore original plantings, Border Management scheme, the City design construct a replacement for the Lake View team has proposed the construction of House, and restore the Hippodrome. The paired, linked, or integrated duty free and drive through the park can only be partially visitor center buildings with possible bridge- restored to connect with Busti Avenue at related office space to be located at Busti Vermont Street instead of Rhode Island Avenue and Vermont Street. These would Street. It seems unlikely that The Bank can also frame the urban entry into the local be rehabilitated under this alternative. street network, in this case at Vermont Street. Buffer and Landscaping Improvements: Circulation System: The northeast and south- There are some enhanced buffer treatments east corners of the Vermont Street/Niagara in the South Plaza alternative, including a Street intersection are occupied by a church City-proposed buffer of secondary truck and the Armory, respectively. The entrance parking along the eastern edge of the plaza, into the City in the South Plaza scheme would and improved plantings between the south be a boulevard with direct view of the end of the plaza and Front Park. neighborhood and these historic structures. Construction of the connecting boulevard along Vermont Street would also require the North Plaza Alternative demolition or relocation of a number of sub- The North Plaza alternative provides what stantial and architecturally significant homes. we might think of as a gateway into the park. Visitors arriving in Buffalo would travel through inspection facilities and around a ceremonial traffic circle in a new park element before entering either the local street system or the highway network.

74 Peace Bridge Gateway Improvement A Strategic Plan for Transportation Improvements

Land Area: The total footprint of this proj- ect, including the plaza and associated park buffer areas, would be approximately fifty- two acres, and would occupy a roughly triangular site north of Rhode Island Street, west of Prospect Avenue, and extending all Highway connections to and from the plaza the way to the Thruway. In addition, a would remain much as they are now. narrow strip of land between Niagara Street However, a new ramp from the southbound and the Thruway north to Albany Street, I-190 to the plaza would be created to now occupied by industrial warehouse replace the Porter Avenue exit, which would buildings, would be included for secondary be removed. Entrances to the plaza from the truck parking. This would require the demoli- northbound I-190 would be simplified and tion of these 19th century structures. relocated slightly to the north, expanding the Building Program: The City design team margins of Front Park to the west. has proposed a new visitor center that Park and Buffer Improvements: Under would be located at the new circle at Rhode the North Plaza alternative, as with the Island and Niagara Streets and punctuating Shared Border Management option, Frederick the Niagara Street axis that runs all the way Law Olmsted’s Front Park would be fully from downtown . A new rehabilitated including replanting; reestablish- duty free store would be constructed within ment of Sheridan Terrace Park Drive; providing the bounds of the plaza. Both visitor center a full roadway loop into the park at Porter, and duty free store, however, would be through the park and out of it at Busti designed to a high standard intended to Avenue and Rhode Island Street; restoration provide identity and character to the maximum of the historic Hippodrome; and development extent possible. of a full network of pedestrian trails and Circulation System: The North Plaza bikeways. The full footprint of historic Fort option, as enhanced by the City design Porter would also be recovered for interpreta- team, would create a new traffic circle inside tion under this scheme, although the restora- the plaza at Massachusetts Avenue and the tion of The Bank seems unlikely. There are current Niagara Street. Most traffic to and also opportunity costs for the North Plaza from the bridge would be routed around this alternative. It would occupy the Niagara circle. The plan would also create a new cere- Bluffs on Niagara Street and preclude the monial circle at Niagara and Rhode Island reuse of that industrial building stock. Streets and establish a new Niagara Parkway in the Olmsted tradition northwesterly from there along the current alignment of Prospect Avenue. This new parkway would form the eastern edge of a new park space about two city blocks in size that would serve as a buffer between bridge and plaza infrastructure and the adjacent neighborhood.

Peace Bridge Gateway Improvement 75 Queen City Waterfront

The North Plaza Alternative without shared border management requires the largest land area to accommodate border security and customs as seen in the plan (top) and sketch (bottom).

76 Peace Bridge Gateway Improvement A Strategic Plan for Transportation Improvements

Evaluation of Alternatives Second, the plaza is already directly adjacent to and encroaches on a densely populated The three long term alternatives can be and vibrant residential neighborhood. Third, evaluated point by point against the goals the area contains highly sensitive park and enunciated by Mayor Masiello in outlining historic resources. our community vision for a new bridge, Shared Border Management is clearly the plaza, and international gateway. In general best option for minimizing the amount of and specifically, the new arrangements land consumed by the Peace Bridge Project. must help us make a great neighborhood The footprint for the Shared Border and create a grand gateway. Management option is about fifteen acres. The footprint for the South Plaza alternative Make a Great Neighborhood is roughly thirty-eight acres, including several Occupies the least land area: Minimizing acres added by the City design team for the amount of land area required for Peace enhanced buffering. The North Plaza alterna- Bridge-related activities on the U.S. side, tive would consume the most area, about including the footprint of the plaza and fifty-two acres, including nearly six acres enhanced buffer areas, is a basic goal of the added to provide a deeper buffer between City for three fundamental reasons. First, the the bridge and plaza and the neighborhood. amount of available land is very limited on the U.S. side (about seventeen acres com- pared to fifty-one on the Canadian side).

The site plan comparison of the alternatives demonstrates the benefit of a shared border accord for the City of Buffalo.

Peace Bridge Gateway Improvement 77 Queen City Waterfront

Minimizes acquisition and preserves However, loss of assessed valuation of local tax base: Likewise, the Shared Border property could be used as a surrogate for at Management alternative is superior in terms least order of magnitude costs. In any event, of costs of acquisition and impact on the tax the relative loss of tax base is clear in the base of the City of Buffalo and Erie County. comparison. As shown in Table 2, the total Shared Border Management will require the assessed valuation lost under Shared Border taking of only one block that is now occupied Management is about $13 million. The lost by the Episcopal Church Home, and will in the tax base under the South Plaza option allow the renovation and resale of vacant is somewhat higher, at $14.2 million. buildings already acquired by the PBA on Implementation of the North Plaza option Busti Avenue between Vermont and Rhode would cost nearly twice as much in lost tax Island Streets. The South Plaza alternative will base – about $24.2 million. The loss in require acquisition of two full blocks, includ- annual property tax revenues for the City of ing one of very solid housing. The North Buffalo alone ranges from a low of about Plaza alternative will require acquisition of all $162,000 in the Shared Border Management or part of eight city blocks. Alternative to $299,000 in the North Plaza Alternative (constant fiscal year 2004 dollars). Actual acquisition and demolition costs Adding in the losses to the school district can only be roughly estimated at this point. doubles these figures.

Table 2: Loss of Assessed Valuation by Long Term Alternatives

Total Loss in Assessed Valuation1 ($ millions)

Shared Border Management South Plaza North Plaza

Base PBA proposal $12.7 $12.9 $21.9

Enhanced buffer $0.4 $1.3 $2.3

Total value $13.1 $14.2 $24.2

Source: City of Buffalo, Office of Strategic Planning.

1 Fiscal Year 2004-05 data.

Preserves housing: Parallel with the discussion above and as shown below in Table 3, the Shared Border Management alternative would have the least impact on housing, requiring the demolition of about twenty-four units. The South Plaza option would require demolition of about fifty percent more housing – a total of thirty-six units in all. The North Plaza option would require far more demolition and cause far more displacement, with an estimated 238 units razed.

Table 3: Housing Unit Loss by Long Term Alternative

Number of Housing Units Demolished

Shared Border Management South North

Base PBA proposal 15 11 161

Enhanced buffer 9 25 77

Total units 24 36 238

Source: City of Buffalo, Office of Strategic Planning.

78 Peace Bridge Gateway Improvement A Strategic Plan for Transportation Improvements

It may be argued that the housing to be elim- Improves parks and connects them to inated in the North Plaza scheme is in poorer neighborhoods: An evaluation of the condition and has a relatively short economic impact of the alternatives on parks and their lifespan, especially in relation to the housing connections to neighborhoods depends on a to the south, which is in good condition and judgment of whether more is always better has relatively high value. On the other hand, and a consideration of the relative costs of the housing to the north is more affordable additional park land. The Shared Border to lower income families who are likely to Management alternative would allow a full have fewer options in housing than their restoration of The Front, full recovery of the more affluent neighbors to the south. site of Fort Porter, and a thorough connection Whatever ranking is given to the North and of parks to neighborhoods via trails and path- South Plaza alternatives in this criterion, they ways. It would also make possible the cre- suffer by comparison with the Shared Border ation of a relatively small new green space Management option. near Busti Avenue and Massachusetts Street. Improves air quality: While a growing The North Plaza option would likewise pro- flow of both trucks and automobiles and vide restoration of The Front and recovery their exhaust is expected at the Peace of Fort Porter. It would also create a new park Bridge over time, the greatest threat to air space about two blocks in size located quality is believed to be from diesel-powered between the proposed Niagara Parkway and trucks forced to idle their engines while the plaza infrastructure. This space would waiting in lines for processing. The impact provide additional neighborhoods with direct of idling trucks is distinctly local, while the connections to a park-trail system, although overall impact of exhaust may be more at the cost of razing parts of those same broadly distributed. In short, ensuring a free neighborhoods. flow of trucks is the most important factor The South Plaza option does not allow in improving neighborhood air quality. recovery of any of the Fort Porter site and In this regard, we are confident that detailed would limit restoration of The Front to the technical studies of air quality impacts will current acreage. Among other things, this show that Shared Border Management will would mean that Sheridan Drive could not be be vastly superior to the other alternatives in restored to its full original length. On balance, improving air quality in neighborhoods adja- the Shared Border option seems best because cent to the Peace Bridge. When trucks are it provides the most parkland at the least inspected on the Ontario side of the border, cost to neighborhood fabric. local air quality impacts on Buffalo’s West Protects historic assets: Four categories Side should be negligible. Even with improve- of historic assets are affected by the several ments in processing under the North or plaza alternatives: historic architecture, his- South Plaza schemes, diesel trucks will still toric streets, neighborhood fabric, and Fort spend significant time idling in a plaza imme- Porter. In this regard, Shared Border diately adjacent to densely-populated Buffalo Management is, again, clearly preferable. It neighborhoods. The Preliminary Draft allows for full recovery of the Fort Porter site, Environmental Impact Statement will indicate requires demolition of the fewest historic whether the North or South Plaza alternative structures, preserves historic street patterns is preferable in this regard. The South Plaza (except for part of Busti Avenue), and leaves option would hold trucks on the far west side the most neighborhood fabric intact. of the plaza while the North alternative would move these further to the north, away from one neighborhood and toward another.

Peace Bridge Gateway Improvement 79 Queen City Waterfront

The North Plaza also promises full recovery Make a Great Gateway of the Fort Porter site and avoids most of the Ensuring that visitors arriving from Canada National Register eligible properties in the experience a great gateway as they enter neighborhood. It would also allow for the Buffalo will depend heavily on the quality of preservation of the Episcopal chapel at Busti architectural and landscape design that will Avenue and Massachusetts Street. However, follow schematic design of the plaza itself. it does threaten to remove up to eight blocks That said, the alternatives provide distinctly of city fabric and would disrupt the historic different opportunities for shaping a great route of Niagara Street. international gateway. The South Plaza would require the demolition The South Plaza alternative, as discussed of the chapel and won’t allow recovery of above, provides for a distinctly urban gate- the Fort Porter site, which would remain way, with no expansion of open space, a covered with asphalt. Moreover, the South constrained street connection to the city, alternative would take many historically and a small footprint for new architecture significant residential structures. In this to accommodate the duty free shop and calculation, the Shared Border Management visitor center. option is clearly preferable. The North Plaza alternative, in contrast, Provides economic development provides for a gateway in a park, with a opportunities: Much of the new economic new expanse of green space, as well as the development potential to be generated by recovered Fort Porter site. Although landmark Peace Bridge expansion is expected to be architecture for the duty free and visitor regional in nature. It won’t only be captured center are possible, this gateway would be in the immediate neighborhood of bridge marked more by the new Niagara Parkway and plaza, but it will occur to the benefit of and associated open space. But this alterna- the larger metropolitan area. There are, tive also faces a special challenge. Because however, three local sites where economic the North Plaza alternative requires a different development opportunities may present configuration of ramps and roads, its infra- themselves: at the point where local streets structure would have a significantly higher connect with the plaza; along the bluffs just profile and require special efforts to mitigate to the north on Niagara Street; and along a “wall of concrete” image. Porter Avenue. The impact on two of these sites is approximately the same under each The Shared Border Management alternative, alternative. All three long term schemes will meanwhile, with a direct connection to allow for limited bridge-related commercial Niagara Street and a fully recovered Fort development at the point where the plaza Porter site, provides both an urban and connects to the local street network. All three park-like entrance to the city. While these will allow for mixed-use and residential devel- are aesthetic judgments, Shared Border opment consistent with the Olmsted theme Management seems preferable to either along Porter Avenue. Only the Shared Border the North Plaza or South Plaza alternatives. Management and South Plaza alternatives, Opens or preserves great views of the however, protect the substantial redevelop- city: Bridge crossings are memorable for ment potential in buildings and sites along the sweeping and sometimes surprising the bluffs above the Niagara River just to the views they offer the traveler. Such views can north of the bridge. The North Plaza option contribute immensely to the image of the would obliterate this valuable industrial- city that newcomers hold in their minds. A warehouse building stock and the mixed- detailed analysis of potential views for arriv- use potential now being explored by several ing visitors must await more detailed designs developers. of bridge, ramp, and plaza infrastructure.

80 Peace Bridge Gateway Improvement A Strategic Plan for Transportation Improvements

Even a preliminary assessment, however, can Comparison Summary identify some of the differences in views The Shared Border Management alternative offered by the three alternatives. The South fully meets all of the goals of the community Plaza alternative would provide visitors with vision. It consumes the least amount of land, views to the south, including Downtown, homes, and businesses; improves the quality pieces of the waterfront, and some of The of life in the neighborhood by substantially Front. It is likely, however, that plaza struc- lowering the air pollutant levels, especially tures as well as landscape buffers will obscure asthma-causing particulates; allows for views of the park and neighborhood once recovery of the Fort Porter site and restoration visitors descend to grade. The North Plaza, of The Front; provides a dramatic entry to the for reasons discussed above, would provide City; and protects historic resources in the potentially higher-altitude views of the city, neighborhood. All of the other alternatives but because automobile passengers would suffer by comparison. turn to the north off the bridge, no views of Downtown or the waterfront would be avail- The South Plaza option causes significantly able. The Shared Border Management alter- more damage than Shared Border native is preferable because it would provide Management. It displaces additional neigh- views to the south similar to those provided borhood areas, prevents the recovery of the by the South Plaza alternative, but without Fort Porter site, and routes local car and truck plaza buildings in the way. traffic through the neighborhood. However, it does leave open the potential for the Provides clear connections to the City: inevitable Shared Border Management with- Mayor Masiello’s vision for the bridge and out the destruction of multiple blocks of plaza includes a goal that visitors be able to Buffalo neighborhoods and without occupy- come to the city as easily as possible. This ing a large expanse of Buffalo waterfront. means that clear and direct connections between the plaza and the city street grid The North Plaza alternative allows for a full are important. Shared Border Management restoration of The Front and recovery of the would provide a simple, visible, and direct Fort Porter site, and it provides a broad land- entrance to the city along Rhode Island Street scape buffer between the plaza and adjacent and marked at Niagara Street by a grand neighborhoods. It does so at a cost of all or circle. The South Plaza alternative would part of eight city blocks of existing neighbor- provide a similar parkway-like entrance along hoods. It also would occupy the bluffs above Vermont Street. The North Plaza alternative the Niagara River on the west side of Niagara requires a rather circuitous route from the Street all the way to Albany Street – a site bridge, through inspections, around an which has some of the most compelling interior traffic circle and then into the street views and some of the most promising system at several points along Niagara Street. economic development possibilities of any It is likely that many visitors would find the place in the City. In many ways, it would be North Plaza alternative a confusing – if not the most costly of all the alternatives, includ- dizzying – way to enter Buffalo. ing in terms of construction dollars. Provides efficient links to highway network: All three alternatives provide direct connections to and from I-190 in both directions. Only the circuitous connections of the North Plaza option hold any significant drawbacks.

Peace Bridge Gateway Improvement 81 Queen City Waterfront

Table 4

Evaluation criteria South Plaza North Plaza Shared Border Management

MAKE A GREAT GATEWAY

A grand entrance Poor Good Good

Great views Poor Fair Best

Good links to city streets Fair Poor Best

Good links to highways Good Good Good

Transportation efficiency Fair Fair Best

Way-finding Good Fair Best

MAKE GREAT NEIGHBORHOODS

Protect housing Good Poor Best

Preserve tax base Fair Poor Fair

Improve air quality Fair Good Best

Protect historic assets Poor Fair Good

Improve parks Fair Good Good

Connect parks, neighborhoods Fair Best Good

Develop the economy Fair Poor Fair

Conclusion: Shared Border and quality of life of our city’s neighborhoods are unacceptable now, and if not ameliorated, Management will continue into the future. The U.S. The governments of the U.S. and Canada environmental review process does not limit have signed an agreement to have Shared project alternatives to those that are currently Border Management at the Peace Bridge and allowed by national legislation, but embraces are currently negotiating how this can be alternatives that serve as catalysts for implemented. SBM is a reasonable and viable changes in federal legislation to further goal for handling the movement of people environmental goals. and goods across the United States/Canada Shared Border Management, like the open border, and it could be argued that SBM borders ushered in by the formation of the should be the only acceptable and justifiable European Union (EU), is vastly superior from course of action. The heavy burden of any local, national, and international perspectives. negative effects of an international bridge Shared border management was one of the crossing of far-reaching economic significance first milestones achieved by the EU and the for both the U.S. and Canada falls squarely agreements addressed the needs of fifteen and inequitably upon the shoulders of the diverse member countries. In contrast, such residents of the adjoining urban neighbor- an agreement for the Peace Bridge requires hoods in the City of Buffalo and Fort Erie. the cooperation of only two very similar The adverse environmental effects of the countries. Many of the impediments to bridge and plaza operations on the health Shared Border Management – including legal

82 Peace Bridge Gateway Improvement A Strategic Plan for Transportation Improvements

restrictions, administrative differences, and Next Steps funding issues – have been self-created. Conversely, many of the factors which As of August 2005, there appears to be a promote an integrated border management consensus: Shared Border Management approach can be developed as the new will be pilot tested at the Peace Bridge agreement demonstrates. International Gateway. Alternative design development by the Public Bridge Authority There is another bridge called the Peace has progressed to now include three design Bridge. It crosses the Jordan River just south alternatives that will be evaluated in the U.S. of the Sea of Galilee and links Israel and environmental review process. That review, Jordan. This Peace Bridge shares customs together with a bridge selection process, facilities for the movement of goods across will lead to the creation of the grand interna- the border. This fact should give us pause. tional border that citizens of Canada and the The success of shared border management U.S. will be proud of for generations to in this much more challenging political envi- come. Each of the proposals illustrated in ronment, with diverse cultures and different August of 2005 are subject to further revisions languages, shows us that it can be done. and public discussion as the Public Bridge Shared Border Management is well within Authority concludes its design and environ- our reach. We have the opportunity to put mental review process. Western New York and Southern Ontario on the cutting edge of cross border manage- ment between our two great nations. And what better place is there to show the world a new model for cooperation than our own Peace Bridge?

Draft North Alignment: A draft proposal (August 2005) for the Shard Border Management Alternative moves the bridge landing to the north of the initial City of Buffalo investigation. (Source: Fort Erie and Buffalo Public Bridge Authority)

Peace Bridge Gateway Improvement 83 Queen City Waterfront

Draft South Alignments: Two alternatives (August 2005) for the Shared Border Management Alternative leaves the bridge landing to the South. (Source: Fort Erie and Buffalo Public Bridge Authority)

84 Peace Bridge Gateway Improvement A Strategic Plan for Transportation Improvements

Waterfront Gateway Nodes: Analysis, Design Guidelines and Proposals

Introduction One of the primary transportation aims of the Queen City Waterfront is to improve access to the waterfronts of the City of Buffalo for cars, trucks, bicycles, and pedestrians. The City is blessed with miles of waterfront, but there are too few places where people can actually access and experience it. As part of the scope of work in the Buffalo Corrifdor Management Plan, five “gateway nodes” were selected for analysis and development of design guidelines and project proposals. The first was the International Gateway at the Peace Bridge, which, because of its central importance for the future of Buffalo’s waterfront, has been called out for in-depth inquiry and the development of alternatives for public discussion. (See Volume 4). Four other nodes were identified that war- ranted an initial analysis of the potential for The waterfronts in Buffalo are lined with highways; the access expanding transportation access to the points over and under these major roadways are limited as seen in waterfront and development of conceptual the above graphic. proposals. Two of these were also proposed for the development of an Expanded Project Proposal (EPP) – a required step for any proj- ect proposal to be considered for funding. • They hold potential for increasing (See Volume 6 and Volume 7 for more waterfront accessibility; detailed information on this work). These • Their conditions are susceptible to gateway nodes were selected because they change and ready for implementation; met many, although not necessarily all, of • They show potential for improving the following criteria: transportation efficiency; • They have potential to support eco- nomic and/or community development; • Potential projects are supported by community input; and/or • Projects were identified in the history of plans.

Waterfront Gateway Nodes: Analysis, Design Guidelines and Proposals 85 Queen City Waterfront

A systematic analysis of the City’s western Primary Nodes for EPP Development edge allowed planners to identify a number Porter Avenue is a key location for of locations that met the criteria outlined waterfront accessibility transportation above and warranted further analysis for improvements. It is adjacent to proposed the development of transportation-oriented improvements in the Peace Bridge area, projects consistent with expressed community which will be reinforced by investments in priorities. Four sites were selected for this the Porter Avenue gateway and further study, and two of these – Porter Avenue and economic development of the area. Porter Erie Street – were assessed as most likely to Avenue connects the City to the very edge be implementable in the immediate future. of the water. As one of Olmsted’s parkways, it is also an integral part of the long-planned Front Park rehabilitation. There have been a long series of proposals for improvement; it is time to implement them. Erie Street is a crucial link between Downtown Buffalo and the waterfront. Indeed, it had connected the waterfront with Main Street at Shelton Square from the first platting of the city until the early 1970s, when the two blocks between Franklin and Main were closed to vehicular traffic and converted into a pedestrian-only zone. Now, in support of ongoing redevelopment of the waterfront and in response to the demand for improved access, it is proposed that these two blocks of Erie Street be reopened to traf- fic to provide a restored visual and physical connection to the waterfront. It is also pro- posed that the outer sections of Erie Street, west of the I-190, be realigned along their original axis as a means to enhance the visual connection from city to water and to rationalize the delineation of development There were two primary nodes and two secondary nodes explored as a part of the Buffalo Waterfront Corridor Initiative Project. parcels in the Waterfront Village.

Secondary Nodes for Conceptual Development The Virginia/Carolina Interchange from I-190 to Niagara Street presents another important opportunity to improve transporta- tion efficiency and waterfront access. Traffic flow to and from the Interstate needs to be improved, especially for traffic leaving the Thruway and turning onto Niagara Street. This interchange will become even more important if access to and from I-190 is eliminated at Porter Avenue as part of Peace Bridge Plaza reconfigurations. Too many

86 Waterfront Gateway Nodes: Analysis, Design Guidelines and Proposals A Strategic Plan for Transportation Improvements

factors are still in flux to warrant develop- ment of an EPP. However, initial analysis and conceptual proposals suggest that modest changes in the configuration of the inter- change could improve traffic flow, preserve pedestrian environments, and allow for new connections from the neighborhood For Porter Avenue, the process involved an to the waterfront. initial meeting with a coalition of neighbor- hood associations and another session with The Scajaquada Creek/Niagara Street the Buffalo Olmsted Parks Conservancy to Interchange also holds significant potential discuss the starting concept. This was fol- for improvements in transportation and lowed by a second meeting to invite this access. It includes part of the new bike trail same range of stakeholders to review and and the site of Squaw Island Park. The critique the proposals. location is still in transition and in need of temporary and long term improvements of transportation infrastructure. A proposal from Urban Design Guidelines a private developer to build an international for Buffalo’s Waterfront bridge at this site suggests that decisions Four basic goals for gateway nodes were about public improvements be held in established. These goals are consistent with abeyance. Site analysis and proposal develop- LWRP policies, and are based on a review of ment, however, suggest that some minor past plans and guided by public participation improvements can be made to improve in this project. Design guidelines for each access. of the four nodes are intended to support achievement of these goals to: Community Participation • Improve access to the waterfront; The selection, analysis and proposal develop- • Promote community and economic ment for the gateway nodes was embedded development; in a larger process that included the analysis of past plans and their community participa- • Enhance transportation efficiency; and, tion components, as well as an ongoing • Support historic preservation efforts. process of community engagement conducted as part of the development of These guidelines are intended to supplement Queen City Waterfront. The latter process existing guidelines and City regulations. For included three large-scale public meetings example, guidelines here for Porter Avenue which brought attention to the waterfront are based on the Olmsted Parks Conservancy agenda, helped set priorities for action, and guidelines for historically appropriate design reviewed specific projects for near-term and site features. These guidelines are also implementation. consistent with the city’s Tree Ordinance and relevant sections of the City of Buffalo’s A more specific review of work in progress Comprehensive Plan The Queen City in the toward EPPs for Erie Street and Porter Avenue 21st Century, and The Queen City Hub was conducted with stakeholders in each of downtown plan. those areas. In the case of Erie Street, con- sultant staff interviewed individual property owners or their representatives to hear their general concerns about the concept, and later reviewed a more developed proposal before a small group meeting to which these same stakeholders were invited.

Waterfront Gateway Nodes: Analysis, Design Guidelines and Proposals 87 Queen City Waterfront

Node Analysis and Proposals Work on all four nodes included both description and analysis, a brief description and history for each site. Historic maps and photographs were collected to identify the extent of change over the years, and photographs of the current conditions were Goals for the Gateway Nodes taken. For each of the sites, maps were Based on this analysis and in collaboration generated to display information in the with stakeholders in each area, specific goals following categories: were established for each of the two primary nodes, Porter Avenue and Erie Street. 1. Existing conditions For Porter Avenue, the goals are to: 2. Land use (commercial, residential, cultural, parks, vacant, and military) • Reinforce Porter Avenue as one of Buffalo’s great Olmsted parkways; 3. Open space (parks, designated open space, vacant land, and brownfields) • Connect Buffalo’s park system to Front Park and beyond to the water’s 4. Historic sites, landmarks, and cultural edge; and resources • Create a grand civic street that 5. Location of projects from the planning acknowledges its educational, inventory cultural, and public amenities. 6. Distribution of public, quasi-public and For Erie Street, the goals are to: private lands • Connect Downtown to the waterfront 7. Opportunities and constraints for cars, pedestrians, and bicycles; These maps are available in Volume 5 of the • Restore the historic Ellicott radial final report. street plan; and • Expand the City across and under the Skyway bridge approach and I-190 to the water’s edge. Specific design guidelines were developed for the primary nodes consistent with the site-specific goals above, and in keeping with the overarching goals of the project, including improvements in access, support for economic development, improvements in transportation efficiency, and preservation of historic resources.

88 Waterfront Gateway Nodes: Analysis, Design Guidelines and Proposals A Strategic Plan for Transportation Improvements

Porter Avenue: Guidelines and Concept Proposals Porter Avenue has the potential to be one of Buffalo’s primary access points to the waterfront. It crosses I-190 at a critical point and offers an opportunity to connect neigh- borhoods to parks and to the water’s edge. A bike path along the shoreline already exists, but it needs to be connected to the City – specifically to bike lanes that run along Richmond Avenue as part of the Olmsted Park and Parkway system. Porter Avenue also presents an opportunity both to highlight the public or civic character of the activities along its right-of-way, and to connect these activities to each other. As shown in the map of “Opportunities and Constraints,” Porter Avenue features extensive public lands, institutional uses, and waterfront parks. Appropriate treatment of the streetscape can do much to connect and Porter Avenue is adjoined by significant green space and civic structures. enhance these uses.

Porter Avenue runs from the Niagara River to Symphony Circle at Richmond. (Source: NYS Orthoimagery Program, 2002)

Waterfront Gateway Nodes: Analysis, Design Guidelines and Proposals 89 Queen City Waterfront

Urban Design Guidelines Transportation: for Porter Avenue • Explore eliminating Thruway on- and Access: off-ramps and Peace Bridge access through Front Park to enhance the • Reinforce connections from Symphony Olmsted character of Porter Avenue. Circle at Richmond Avenue and North Street through the International • Connect DAR Drive from LaSalle Park Gateway at Niagara Street and contin- with access road to Cotter Point to ue Porter to the water’s edge through create a clear four-way intersection clearly marked access for cars, bicycles, with Porter Avenue. and pedestrians. • Minimize further expansion of surface • Use trees, lighting plan, and street walls parking lots, allow on-street parking to frame the vista to the water with and eliminate existing lots where uninterrupted sight lines. possible, and add parking near the foot of Porter Avenue. • Maximize public access directly to the water along the Black Rock Canal at • Provide clear vehicular access from the foot of Porter Avenue with a small highways to the local street network urban park and at Cotter Point through through improved signage to I-190, increased activity such as boating and the Peace Bridge, and routes to fishing access and through development Downtown. Porter Avenue could be designed to look as such as the Great Lakes Research Center. gracious as Richmond Avenue, one of • Provide alternative access along street Olmsted’s great streets. • Define the bridge over I-190 as a connections to the waterfront including gateway through the use of bridge art, transit connections, designated bike- lighting, and landscaping. ways, and safe and friendly pedestrian paths.

Community Development: Historic Preservation: • Reinforce Niagara Street where it intersects with Porter Avenue as the • Reestablish the Olmsted parkway international gateway to Downtown pattern and connections to and from through streetscape improvements, historic Front Park through reconfigura- directional signage, and urban-density tion of pavements, sidewalks, and redevelopment. landscaping. • Over time, promote the replacement • Reinforce Olmsted design standards of low-density auto-oriented businesses through the use of historically appropri- on Porter Avenue with urban street- ate lighting fixtures and patterns, street front development, including multi-story furniture, paving, etc. and mixed-use buildings with ground • Celebrate and interpret Porter Avenue’s floor commercial and upper housing Olmsted history, its Erie Canal history and offices. including the route of the canal and • Develop water-dependent and water- the canal bridge foundations, along enhanced uses within the coastal zone with other historical elements, including as consistent with the Local Waterfront the West Side Rowing Club, the Revitalization Program. Colonel Ward Pumping Station, and the Bird Island Pier.

90 Waterfront Gateway Nodes: Analysis, Design Guidelines and Proposals A Strategic Plan for Transportation Improvements

Concept Design Proposals Three alternatives were considered by stake- holders and planning staff. First was to “do nothing.” Second was to provide a three- lane roadway with one moving lane in each direction, a center lane for turning, and no on-street parking. The third was to create a four-lane road with one lane of traffic in each direction and one lane of parking on each side. The wider boulevard with parking was deemed to be most in keeping with the Olmstedian character of Porter Avenue. The four lane configuration is proposed to be combined with an off-road recreational path extending from the Shoreline Trail and along Front Park to Busti Avenue. At Busti Avenue, the off-road path would connect to an on-road bike lane which continues until it connects at Symphony Circle to the dedicated on-street bike lanes that extend down Richmond Avenue. The overall plan for the right-of-way between

A multi-use trail system is proposed for Porter Avenue. the waterfront and Niagara Street was devel- oped by looking carefully at five segments that had a different enough character to demand a slightly different treatment. The segments are identified as: A. Waterfront to DAR Drive B. DAR Drive to I-190 Bridge C. I-190 Bridge D. I-190 Bridge to Busti Avenue E. Busti Avenue to Niagara Street

Different conditions along Porter Avenue demanded that it be divided into segments for design proposals.

Waterfront Gateway Nodes: Analysis, Design Guidelines and Proposals 91 Queen City Waterfront

Segment A – Waterfront to DAR Drive Segment B – DAR Drive to I-190 Bridge Features include terminus at end of Porter Features include rationalized connection Avenue, perpendicular parking on Colonel between DAR Drive and access road to Ward’s Pumping Station side, and an Cotter Point, narrowed road with two rows improved bike path. of trees, and a bike path.

Porter Avenue Segment A Plan Porter Avenue Segment B Plan

Porter Avenue Segment A Rendering Porter Avenue Segment B Rendering

Porter Avenue Segment A Section Porter Avenue Segment B Section

92 Waterfront Gateway Nodes: Analysis, Design Guidelines and Proposals A Strategic Plan for Transportation Improvements

Segment C – I-190 Bridge Segment D – I-190 Bridge to Busti Avenue The bridge is built on a historic foundation We developed two alternatives in this area: that was a part of the Erie Canal, and D-1 has a three travel lanes, while D-2 has access to the lower level would make the two lanes of moving traffic and two lanes of foundations visible. The roadway on the parking. Both have a recreational trail and a bridge would be narrowed and the space walkway. Public input and Olmsted guidelines used for bikeway and walkways with historic suggest that option D-2 is preferable. lighting features.

Porter Avenue Segment C Plan Porter Avenue Segment D Plan

Porter Avenue Segment C Rendering Porter Avenue Segment D Rendering

Porter Avenue Segment C Section Porter Avenue Segment D Section

Waterfront Gateway Nodes: Analysis, Design Guidelines and Proposals 93 Queen City Waterfront

Segment E – Busti Avenue to Niagara Street The road bed here, like in Section “D,” has two alternatives: E-2 has four lanes (two moving traffic and two parking), and E-1 has a three lane option. As in the last section, we suggest that alternative E-2 is preferable.

Porter Avenue Segment E Plan Porter Avenue Segment E Section

The proposed design for Porter Avenue between the Niagara River and Niagara Street maintains the historic street width.

94 Waterfront Gateway Nodes: Analysis, Design Guidelines and Proposals A Strategic Plan for Transportation Improvements

Erie Street: Guidelines The straightening of the western end of Erie Street is suggested to restore the historic and Concept Proposals radial street pattern and to provide new One of the primary goals of the Erie Street urban development sites along the realigned proposal is to reopen the connection street. This proposal for new development, between Main Street in Downtown and including a modification of the current urban the waterfront. The proposed design opens renewal plan, brings the city grid to the a vista directly from Main Street to the water’s edge and actually “moves” the city waterfront so that Buffalo is reminded that to its waterfront. it is a waterfront city.

An aerial view of Erie Street shows the curve west of the I-190 and the pattern of the original Urban Renewal plan. (Source: NYS Orthoimagery Program, 2002)

Waterfront Gateway Nodes: Analysis, Design Guidelines and Proposals 95 Queen City Waterfront

Urban Design Guidelines for Erie Street Transportation: Access: • Create clear vehicular access and provide clear signage to highway • Provide continuous public access to the connections, including the Buffalo water’s edge by proposing a fifty foot Skyway and I-190; setback; • Provide clear access for cars along direct • Create a continuous public realm street connections from the central by expanding the urban grid and business district to the waterfront; promoting ground floor commercial development; • Minimize parking in surface lots by allowing on-street parking and promot- • Provide a direct connection from Main ing development of structured parking Street along Erie Street straight to the in mixed-use buildings; water’s edge with provision for cars, bicycles and pedestrians; • Provide alternative access along street connections to the waterfront including • Create uninterrupted sight lines from transit connections, designated bike- Downtown to the water and frame ways, and safe and friendly pedestrian the vista with trees, lighting and street paths; and walls; • Maintain future possibilities for pedes- • Improve safety and security by trian bridge or other connections from improving lighting for cars and a reconfigured Erie Street to the Outer pedestrians (especially under bridges) Harbor. and by promoting ground level activity and round-the-clock occupation of the public realm; and Historic Preservation: • Transform bridge underpasses from • Re-establish Ellicott radial and grid barriers to gateways through the use plan and use the historic Erie Street of lighting, artwork, signage, and use right-of-way from Main Street to of a recognizable waterfront marker. the water’s edge; • Reference the Olmsted parkway pat- Economic Development: tern, where possible, through the use of characteristic double rows of trees; • Expand development opportunities by extending the urban street grid • Reinforce the Ellicott historic district west beyond the Thruway, creating designation on upper Erie Street urban-style development parcels; through the use of appropriate lighting fixtures, street furniture, and other • Promote urban densities with multi- design details; story buildings, zero-lot line design, mixed uses, ground floor commercial, • Celebrate and interpret Erie Canal and housing or offices above; and history, including the site of the canal intersecting Erie Street, connections • Develop water-dependent and water- to ongoing Erie Canal Harbor develop- enhanced uses within the coastal zone ments, and landscape or water feature as consistent with the Local Waterfront treatments of the historic Evans Slip; Revitalization Program. and • Maintain urban proportions through zero-lot line development and appropriate ROW to building height relationships.

96 Waterfront Gateway Nodes: Analysis, Design Guidelines and Proposals A Strategic Plan for Transportation Improvements

Concept Design Proposals Segment A – The Buffalo River to I-190 and Perry Boulevard Erie Street was divided into three segments for purposes of design: This area has been an Urban Renewal Area with a plan specifying development in a sub- A. The Buffalo River to I-190 urban manner. The intention is to revise the and Perry Boulevard Plan to facilitate more urban, dense, and B. I-190 and Perry Boulevard taller structures along the newly aligned to Franklin Street Erie Street. C. Franklin Street to Main Street

Erie Street Segment A Plan

The proposal is to return Erie Street to its historic alignment that would require restructuring the Urban Renewal plan.

Erie Street Segment A Rendering

For purposes of design, Erie Street was divided into three segments.

Erie Street Segment A Section

Waterfront Gateway Nodes: Analysis, Design Guidelines and Proposals 97 Queen City Waterfront

Segment B – I-190 and Perry Boulevard to Franklin Street The street between the Thruway and Pearl Street includes the area under the bridges. We are proposing that these spaces be redesigned to give a sense of a gateway between Downtown and the waterfront, rather than the current sense of being “nowhere” spaces. This space under I-190 was the former Erie Canal and can be interpreted as such. Because of the I-190 and the ramp up to the Skyway, this area is quite complex from a traffic and way-finding perspective. The proposal clarifies traffic movement and also provides signage to ease movement onto I-190.

The proposal for Erie Street is to return it to its historic path and directly connect Main Street to the waterfront.

Erie Street Segment B Plan

Erie Street Segment B Section

Erie Street Segment B Rendering

98 Waterfront Gateway Nodes: Analysis, Design Guidelines and Proposals A Strategic Plan for Transportation Improvements

Segment C – Franklin Street to Main Street This section of Erie Street is the former Sheldon Square where a number of streets intersect and a small urban park, Cathedral Park, is located. Any proposal must address the park-like quality of the street, while at the same time making a clear directional state- ment about the location of the waterfront. This area also has commercial property on the Erie Street Segment C Plan south side of the street which require access. This has been addressed with a pull off lane.

Erie Street Segment C Rendering

The proposal to return Erie Street to its original alignment would permit uninterrupted public access from Main Street to the water’s Erie Street Segment C Section edge. The photograph shows the existing vantage point looking west from the top of the parking garage east of Main Street on Division Street.

A concept sketch looking east from the west end of Erie Street illustrates the proposed density of development due to parcels created north and south of a straightened Erie Street. (Source: Charles Gordon, Architect)

Waterfront Gateway Nodes: Analysis, Design Guidelines and Proposals 99 Queen City Waterfront

Secondary Nodes edge street – veers to the northwest, while Tonawanda Street heads north into a key The identification of secondary nodes supports industrial, warehousing and transportation the ongoing transportation planning for the district. city in a phased manner. These critical inter- sections should be in the process of preparation for improvements once the primary nodes are Key opportunities identified in the underway. Both the Scajaquada intersection analysis of this area include the and the Virginia/Carolina interchange are potential to: important to the efficient traffic flow of the • Expand public open space and improve city and offer opportunities for both public access to the bike path, Scajaquada access and economic development. Creek, and the new Squaw Island Park;

Scajaquada/Niagara Street • Identify historic resources including the Erie Canal, International Railroad The area surrounding the interchange Bridge, and rail-oriented industrial between the Scajaquada Expressway, the I-190 buildings; and Niagara Street is extremely complex and • Convert the Scajaquada Expressway demands in depth planning for transportation to a parkway; and urban design. National and international rail lines, limited access highways, local • Improve access from I-190 to industrial streets, and bike trails all converge in the areas; vicinity of the mouth of the Scajaquada Creek • Rationalize the intersection at Niagara where it enters the Black Rock Channel, Street, Tonawanda Street, and the former location of the Erie Canal. Here, too, on-ramp to the Scajaquada; and Niagara Street – the city’s defining water’s • Improve bike lanes.

The complexity of the Scajaquada Node at the meeting of the I-190, the Scajaquada Expressway (198) and Niagara Street requires ongoing study even while offering opportunities for more traffic efficiency and public access.

100 Waterfront Gateway Nodes: Analysis, Design Guidelines and Proposals A Strategic Plan for Transportation Improvements

Virginia/Carolina Interchange • Develop safe pedestrian crossings where I-190 ramps meet Niagara The interchange between Niagara Street and Street; and I-190 along Virginia and Carolina Streets occupies a large swath of the city and pro- • Create new connections between vides a key access point from the region to Niagara Street, local neighborhoods Downtown and the Lower West Side. Already and LaSalle Park. important, this interchange is likely to become even more so if connections to and from I-190 at Porter Avenue are implemented as proposed. A number of opportunities are Summary available to achieve the goals of this project. Buffalo, Queen City of the Lakes, has been cut off from its waterfront for many years: first through the industrialization of the Systematic description and analysis of waterfront, and more recently by highways. this node suggest the possibility to: These proposals for gateway nodes offer • Remove the I-190 on-ramp from concrete and attainable ways to reconnect Virginia Street west of Niagara Street; the city and water to improve public access, generate new development opportunities and • Recapture land between the current to improve transportation effectiveness. on- and off- ramps and reconnect it to the neighborhood fabric; • Rationalize the intersection of the ramps and Niagara Street, currently the site of significant traffic jams;

The Virginia/Carolina Interchange is one of the busiest I-190 on/off ramps and it offers the potential of a greenway from Niagara Street to the water’s edge.

Waterfront Gateway Nodes: Analysis, Design Guidelines and Proposals 101 Queen City Waterfront

Implementation

Introduction Setting Priorities All Buffalonians who care about the future of It should be obvious that the City of Buffalo their waterfronts know that implementation can’t do everything it wants all at once. has been the great stumbling block to Nor can we even do everything we would achieving the community vision. Many plans someday like to do. There won’t be enough have been made, but fewer have been put money under any circumstances to do it all. into action as the review of the planning For these reasons alone it will be necessary legacy in this project has shown. As a result, to set some priorities about what things are no one who knows the history of Buffalo more or less important to accomplish and waterfront planning and development would which things should be done first and which disagree that implementation is the key to set aside until later. success of the LWRP and to the Queen City Beyond the simple limits on action imposed Waterfront, this strategic plan for the by the scarcity of resources there are other transportation corridor. reasons why we should do some things now, At the same time, it is critical to understand others later and still others not at all. the true links between planning and action. Inevitably, these choices about priorities will Sometimes the issue is framed as one of be made in a political way by elected officials planning versus action. Instead, we ought to and their designees or, in some cases, by understand planning as the necessary – but private parties acting on their own. Yet we not sufficient – prelude to action. Even better, can identify some principles that can guide we could understand the entire process as a our deliberations about priorities. series of interrelated steps, with clear plan- ning analysis and strong citizen participation leading to good plans which are, in turn, Finish What We Start connected to strong public policy, clear There are many projects identified within this budgetary priorities, and well-established plan that are consistent with its vision, goals processes of coordination among public and and policies, that are well developed in terms private implementing agencies. of concept, design and development and The current plan incorporates years of that will contribute substantially to the systematic planning analysis and persistent improvement of Buffalo’s waterfront corridor citizen participation to produce consensus that are stalled for lack of money or attention. planning proposals translated through strong Some, like the LaSalle Park master plan or the public policy. What remains to be discussed is Riverside Park restoration are, in fact, partly a process for setting clear priorities, budget- done. For any and all projects that are in ary and otherwise, and to build on the recent progress or ready to go we must resolve to experience of interagency coordination finish what we start. toward waterfront plan implementation.

102 Implementation A Strategic Plan for Transportation Improvements

Build from Strength Don’t Spend It All in One Place The impact of public investments in the There is a hunger in some quarters for the waterfront will be greatest when we connect big project that can change everything. But those investments to one another. This will really big projects can also consume all of our create the greatest public amenity and lever- resources and make it impossible to pursue age the greatest private sector investment. the full breadth of this project agenda. The alternative is to scatter investments in a Maybe a “Big Dig” Downtown or an Outer way that diminishes their impact. This does Harbor tunnel are needed. But we must be not mean we should put all of our investments sure we don’t spend all of our money in one in one place, only that we should think such place. strategically how we move geographically These principles won’t tell us in every case from one success to another. what’s most important or needs to be done first. But they can discipline our thinking and discussion about priority-setting. They need Make Change Visible to be applied in an open and deliberative Even small investments can have a huge process that involves relevant decision-makers impact on public perceptions and public use of and the general public. the waterfront. The creation of the Riverwalk, Scajaquada Path, Buffalo River Greenway, and soon the Outer Harbor Greenway have and will change how Buffalonians see their Next Steps waterfront. Yet, altogether, these projects will Although public frustration with implementa- have cost far less than more expensive and tion of waterfront proposals and projects is ambitious projects. deeply justified, there are two elements to the conventional wisdom about waterfront planning that are demonstrably wrong. Hew to Core Values First, it is not true that nothing has been There will be temptations to use waterfront done to achieve the community vision for lands for purposes not recommended by this Buffalo’s waterfront. The inventory of plan nor allowed by the LWRP. Use of water- planning and action that is included in this front lands for uses not related to the water work spells out in great detail the specific will both consume finite resources and spoil steps that have been taken to transform other investments. Priority projects must our waterfront in accordance with the hew to the core values of public access, community vision. environmental improvement, neighborhood connections, and water-appropriate economic Second, it is also not true that agencies in the development. region have failed to work together. Recent progress on waterfront projects has been made in large part because of systematic, albeit ad hoc, coordination among municipal, county, state and federal agencies. Project staff at all four levels of government have built strong working relationships and methods of communication that have paid off in tangible achievements.

Implementation 103 Queen City Waterfront

What is required now is to institutionalize Conclusion these working relationships so that coordina- tion among cooperating agencies becomes Buffalo emerged from its waterfronts and routine. The recent decision to create a Buffalo insists that it will return to the water. special-purpose waterfront agency gives a Recent history has been marked both by great strong focus to work on Buffalo’s Inner and frustrations and significant achievements. But Outer Harbor. This is especially true because the future ought to be bright, for the city has the new organization has revenues dedicated much of what is needed to create positive to it through the New York State Power change on its waterfronts: a clear community Authority Reliscensing Agreement. But all vision for the future, a strong plan incorporating this cannot eliminate the need for ongoing consensus projects, and a working cadre of interagency coordination first, because implementing agencies. municipal, county, state and federal interests will continue to be involved in waterfront developments, and second, because Buffalo’s waterfronts encompass far more than the Inner and Outer Harbor. The implementation of proposals included in this plan require continued institutionalization of interagency coordination. The agencies that have already been involved in these processes – the City of Buffalo, County of Erie, Empire State Development Corporation, the U.S. Army Corps of Engineers, New York State Department of Transportation, New York State Department of Environmental Conservation, and many others are critical to the success of plan goals.

104 Implementation A Strategic Plan for Transportation Improvements

Appendix A.

Bibliography of Plans and Related Documents (Taken from Volume 2 of the Queen City Waterfront based on the inventory completed in March 2003)

ORGANIZED BY SPONSORING AGENCY • LISTED BY AUTHOR OR CONSULTANT

City of Buffalo Alan M. Voorhees & Associates, Inc. Accessibility Requirements Buffalo Waterfront, for the Department of Urban Renewal, City of Buffalo, n.d. , Niagara River Globally Significant Important Bird Area Resolution, 1998. Buffalo Common Council’s Waterfront Greenway Task Force, The City of Buffalo Waterfront Greenway System Report, 1995. Buffalo Economic Renaissance Corporation, City Smart Strategic Plan for Real Estate Investment, 2001. Buffalo Environmental Management Commission, General Plan – Buffalo Environmental Policy, 1996. City of Buffalo, Connecticut Street Urban Renewal Plan, circa 1982. City of Buffalo, Grant Ferry Urban Renewal Plan, n.d. City of Buffalo, Old Bailey Woods Park, 2001. City of Buffalo, Proposed Buffalo Waterfront Revitalization Program, 1990. City of Buffalo, Erie County, and Niagara Frontier Transportation Authority, Outer Harbor WaterfrontTrail Project Application, TEA-21 Application, 2001. City Planning Board, Buffalo Waterways: A history of the Port of Buffalo and related matters, August 1970. DeLeuw, Cather & Company, Grant Ferry International Marketplace Project Plan, for the City of Buffalo, n.d. DeLeuw Cather & Company, LaSalle Park Preliminary Master Plan, for the City of Buffalo, 1997. DeLeuw, Cather and Company, South Buffalo Redevelopment Concept Plan, for City of Buffalo Division of Planning, 1997. Dennison Associates, Inc, Revitalization of the Richmond Avenue Neighborhood, for the City of Buffalo, 2000. City of Buffalo Department of Urban Renewal, Waterfront Redevelopment Project, December 12, 1961. Department of Planning, University at Buffalo, The New Zoo: Impacts and Opportunities Along theBuffalo River, for the City of Buffalo, 1998. Ecology and Environment, Final GEIS for Development of the Union Ship Canal, for the Buffalo Economic Renaissance Corporation, 2002. Erdman Anthony Consulting Engineers, Gateway Tunnel Feasibility Study, Phase III & IV, for the City of Public Department of Public Works, May 1994. Erdman Anthony Consulting Engineers, Gateway Tunnel Feasibility Study Exhibits, for the City of Public Department of Public Works, April 1994. Freschi, Bruno and Ernest Sternberg, University at Buffalo School of Architecture and Planning and Stieglitz Stieglitz Mach, PC, Remaking Buffalo’s Downtown Waterfront, Master Plan, for the City of Buffalo, 1996. Friends of the Buffalo Niagara Rivers, Buffalo River Greenway Implementation Project, for the City of Buffalo, 2002. Friends of the Buffalo River, Buffalo River Greenway Plan and Design Guidelines, for the City of Buffalo, 1996. Friends of the Buffalo Niagara Rivers, Buffalo River 100’ Setback Ordinance, Background research for the City of Buffalo, 2001. Friends of the Buffalo Niagara Rivers, Draft Buffalo River Paper Streets: A Status Report, for the City of Buffalo Department of Strategic Planning, 2001. Global Asset Consulting, [Proposal to the City of Buffalo for 630,000 square foot mixed use building at former Crawdaddy’s site], The Buffalo News, March 12, 2002. Hayden Wegman Consulting Engineers and Jenny Engineering Corporation, Gateway Tunnel Feasibility Study, Phase II, for the City of Buffalo Department of Public Works, June 1993. Hayden Wegman Consulting Engineers and Jenny Engineering Corporation, Gateway Tunnel Feasibility Study, Phase I, for the City of Buffalo Department of Public Works, 1990. John Milner & Associates, An Assessment of Development Alternatives for the Buffalo Inner Harbor Project, for Downtown Development, Inc October 2000. Lira Group, [Proposal to the City of Buffalo for restaurant at former Crawdaddy’s site], in The Buffalo News, March 12, 2002. Malcolm Pirnie, Inc, Hanna Furnace Site Remedial Action Work Plan, for the Buffalo Economic Renaissance Corporation, 2002. Malcom Pirnie Inc., Wendel Design, and City of Buffalo, Trash to Treasure: Revitalization of Buffalo’s Waterfront, 1998. Marshall, Macklin Monaghan Limited, Buffalo Waterfront Project - Design Participation Session, for the City of Buffalo Waterfront Planning Board, 1984.

Appendix A 105 Queen City Waterfront

Marshall, Macklin Monaghan Limited, Buffalo Waterfront Project Product G3 – Market Forecasts and Sensitivity Analysis, for the City of Buffalo Waterfront Planning Board, 1984. Marshall, Macklin Monaghan Limited, Buffalo Waterfront Project Product B2 – Research Review Problems and Opportunities, for the City of Buffalo Waterfront Planning Board, 1984. Mayor Anthony M. Masiello’s Housing Design Advisory Board, Lower West Side Neighborhood Stabilization Demonstration Program Housing Design Review Guidelines, 1997, 2001. National Congress for Community Economic Development, West Side Strategic Assessment, for the City of Buffalo Office of Strategic Planning, 2000. Parsons Transportation Group & Malcolm Pirnie, Inc., Tonawanda Street Corridor Study, Prepared for the Tonawanda Street Corridor Steering Committee, 2000. The Private Sector Collaborative, A Plan for Buffalo, 2001. Project Development Cos., [Proposal to City of Buffalo for 50-story residential tower at former Crawdaddy’s site], The Buffalo News, March 12, 2002. Stearns & Wheeler, Buffalo River Fish and Wildlife Habitat Restoration Project, for the City of Buffalo and Erie County Department of Environment and Planning, 1995. Urban Design Project, University at Buffalo, School of Architecture and Planning, with the Niagara Gateway Association and The Lower West Side Development Corp., The Niagara Street Revitalization Project; A Work In Progress, 1992. Urban Design Project, University at Buffalo, School of Architecture and Planning, The Lower West Side, Strategies for Neighborhood and Community Development, 1994. Urban Design Project, University at Buffalo, School of Architecture and Planning, Community Meeting – Connecticut Street Neighborhoods, 1995. Urban Design Project, University at Buffalo, School of Architecture and Planning, Foundations for West Side Planning: A Crosscutting Analysis of Two Decades of Plans, 2001. URS Greiner, Inc., Lower West Side Development Strategy, for the City of Buffalo, 1998. Wallace, Roberts & Todd, et al. Buffalo Waterfront Master Plan, Prepared for the City of Buffalo and NYS DOT, circa 1985. Wallace, Roberts & Todd, Lakeview Homes/Lower West Side HOPE VI Revitalization Plan, for the Buffalo Municipal Housing Authority, 1999. Waterfront Regeneration Trust, Buffalo-Fort Erie International Gateway Strategy Final Draft Report, 1998. Wendel, Delaware Park 1992 Comprehensive Development Plan, with Bruce Kelly and David Varnell, for the City of Buffalo, with the Delaware Park Master Plan Committee, September 1992. Wendel, Riverside Park and Adjacent Waterfront Parks Master Plan, for the City of Buffalo with the Riverside Park Steering Committee and the Northwest Waterfront Review Committee, February 6, 1996. Wendel, Front Park Master Plan/ Rehabilitation Reprot, with DeLeuw, Cather & Company and Walker Kluesing Design Group, for the City of Buffalo, with the Front Park Citizen Advisory Committee, July 1996. Wendel, Cazenovia Park Master Plan, for the City of Buffalo, with the Cazenovia Park Steering Committee, June 20, 1997. Wendel Design and the Buffalo Common Council’s Waterfront Greenway Task Force, The City of Buffalo Greenway System Implementation Plan, Prepared for the City of Buffalo, 1998. Wendel-Duchscherer, Buffalo Intermodal Transportation Center Environmental Assessment, for the City of Buffalo, Niagara Frontier Transportation Authority and the Buffalo Economic Renaissance Corporation, 2001. WNY AFL/CIO Economic Development Group, Clean Coal District Heating System, nd. Cazenovia Creek Flood Control Channelization, for the City of Buffalo Department of Public Works by, 1996. Buffalo Fort Erie Public Bridge Authority Buffalo and Fort Erie Public Bridge Authority, Draft Scoping Document, Peace Bridge Expansion Project Bi National Integrated Environmental Process, October 2001. Waterfront Regeneration Trust, Ammann & Whitney Consulting Engineers, The Louis Berger Group, Inc., Buckland & Taylor Ltd., and Parsons Brinckerhoff Quade & Douglas, Peace Bridge Public Review, Final Report, for the City of Buffalo, Community Foundation for Greater Buffalo, Erie County, and the Margaret L. Wendt Foundation, March 2000. Waterfront Regeneration Trust, Ammann & Whitney Consulting Engineers, The Louis Berger Group, Inc. Peace Bridge Public Review, Interim Report, for the City of Buffalo, Community Foundation for Greater Buffalo, Erie County, and the Margaret L. Wendt Foundation, October 6, 1999. Empire State Development Corp. Parsons Brinckerhoff Quade and Douglas, The Buffalo Inner Harbor Project, Final Environmental Impact Statement, for Empire State Development Corp. et al, 1999. Jambekhar Straus Architects, Flynn Battaglia Architects, and Mathews Nielsen Landscape Architecture, Site Opportunities and Constraints, the Buffalo Inner Harbor Project Draft Master Plan, for Empire Stated Development Corporation, et al.

106 Appendix A A Strategic Plan for Transportation Improvements

Erie County Erie County Department of Environment and Planning, Seneca Bluffs Wetland Restoration Project, 2002. The Rivers Studio, Erie Canal Heritage Waterfront Feasibility Study, for Erie County, 2000 Stearns & Wheeler, Buffalo River Fish and Wildlife Habitat Restoration Project, for the City of Buffalo and Erie County Department of Environment and Planning, 1995. Erie County and the City of Buffalo, A Policy Plan for Waterfront Development in the City of Buffalo, An Air Quality Technical Assistance Demonstration Project, September 30, 1981. Greater Buffalo Niagara Regional Transportation Council Erik Frisch for the Greater Buffalo Niagara Regional Transportation Council, The Ontario-Niagara-ErieBikeway, n.d. Greater Buffalo Niagara Regional Transportation Council, 2025 Long-Range Transportation Plan for Erie and Niagara County-Selected 2010 Long-Range Plan Accomplishments, 2000.

Horizons Waterfront Commission Ehrenkrantz & Eckstut Architects, PC. Buffalo Harbor, Phase III Final Report, Master Plan and Development Program, for the Horizons Waterfront Commission and the City of Buffalo Urban Renewal Agency, January 1994. Ehrenkrantz & Eckstut Architects, PC, Buffalo Harbor Master Plan, Phase II Draft Final Report, Plan Summary, for the Horizons Waterfront Commission, July 29, 1993. Ehrenkrantz & Eckstut Architects, PC, Buffalo Harbor, Phase I Final Report, Planning and DesignPrinciples Summary, for the Horizons Waterfront Commission, Inc., July 1992. Cambridge Seven Associates, Inc, and Harrison Price Co, Buffalo Harbor Center Final Report – Executive Summary and Concept Plan, for the Horizons Waterfront Commission. 1992. The Dunn Corporation, Buffalo Outer Harbor Project – Draft Task 2 Report – Preliminary Analysis Inactive Hazardous Waste Sites, for Ehrenkrantz & Eckstut, Architects, PC, for the Horizons Waterfront Commission, 1992. Ehrenkrantz & Eckstut Architects, Buffalo Harbor Phase I Final Analysis/Draft Principles Interim Memorandum, for the Horizons Waterfront Commission, 1992. Saratoga Associates, Action Plan, Prepared for the Horizons Waterfront Commission, 1991. Travers Associates, Buffalo Outer Harbor Circulation Analysis, for Ehrenkrantz & Eckstut, Architects, PC, 1992.

New York State Department of Environmental Conservation New York State Department of Environmental Conservation, Buffalo Outer Harbor Property Brownfield Site, Meeting Notice, February 5, 2002. New York State Department of Environmental Conservation, Shenango Steel Mold Hazardous Waste Disposal Site, Meeting Announcement to discuss clean-up proposal, February 2002. New York State Department of Environmental Conservation, Buffalo River Canoe Trail (on-line) New York State Department of Environmental Conservation, Niagara River Remedial Action Plan, 1989. New York State Department of Environmental Conservation, Priority Waterbodies List, 1996. New York State Department of Environmental Conservation and New York State Office of Parks, Recreation and Historic Preservation, Conserving Open Space in New York State 2001: Draft State Open Space Conservation Plan and Generic Environmental Impact Statement, 2001. Saratoga Associates, Tifft Farm Nature Preserve Master Plan, for Greater Buffalo Development Foundation and New York State Department of Environmental Conservation, n.d.

Niagara Frontier Transportation Authority Kevin Townsell, Buffalo Festival Grounds at The Pier, approved February 2002. Tippetts Abbett McCarthy Stratton, Outer Harbor Development Plan, for the Niagara Frontier Transportation Authority, 1988. Niagara Frontier Port Authority, Annual Report, including proposal on port dredging and Outer Harbor Fill, March 31, 1964.

University at Buffalo Center for Environmental Research and Education, Buffalo State College, An Environmental Guidebook to the Buffalo River, n.d. Center for Urban Research in Primary Care, University at Buffalo, Lower West Side Health Needs SurveyReport, 1994. Corkutt, Ursula, Bruce Simmons, and Lucien Swerdloff, Department of Planning, University at Buffalo, Site Analysis of Buffalo River Industrial Area, 1985. Department of Planning, University at Buffalo, Wind Energy Initiatives for Greater Buffalo, Graduate planning studio, 2001. Fell, John M., Nicholas Raczyk, and John M. Thompson, University at Buffalo Department of Planning, Upper West Side of Buffalo – A Neighborhood in Transition, 2000.

Appendix A 107 Queen City Waterfront

U.S. Army Corps of Engineers Buffalo River Dredging Partnership, U.S. Army Corps of Engineers, Buffalo River Environmental Dredging – Section 312, 2002. Gulf South Research Institute, Buffalo Harbor Revitalization Study – Final Report, for the U.S. Army Corps of Engineers, 1981. U.S. Army Corps of Engineers, Biological Survey Buffalo River and Outer Harbor of Buffalo, NY Final Report, June 1982. U.S. Army Corps of Engineers – Buffalo District, Times Beach Feasibility Study, 2001. U.S. Army Corps of Engineers, Buffalo State College Great Lakes Field Station Wetlands CreationProject – Section 206, Ongoing. U.S. Army Corps of Engineers, Inner Harbor – Section 107, ongoing. U.S. Army Corps of Engineers, South Park Lake Aquatic Ecosystem Restoration Project; 2001. U.S. Army Corps of Engineers, Times Beach Nature Preserve/Habitat Restoration – Section 1135, with the Times Beach Ad-Hoc Committee, ongoing. U.S. Army Corps of Engineers, Union Ship Canal Project – Section 107, ongoing. U.S. Department of Transportation and New York State Department of Transportation, SouthtownsConnector/Buffalo Outer Harbor Project Scoping Report, 2002.

Others Buffalo City Planning Association, Inc., Buffalo’s Waterfront Today – and Tomorrow. April 1939. Buffalo Industrial Heritage Committee, Inc, Buffalo Industrial Heritage Trail, Ongoing. Buffalo Olmsted Parks Conservancy, Front Park Restoration, Ongoing. Central Referral Service, Allentown Human Service Agency Siting Database, for the Allentown Association, 2000. Ehrenkrantz & Exkstut Architects, PC, Memorial Auditorium Reuse Study, Charette Summary Report, for the Buffalo Sabres, March 1993. Hamilton Houston Lownie Architects, PC, Great Lakes Center Aquatic Field Station, for Buffalo State College, 2000. Hamilton Houston Lownie Architects, PC, Frank Lloyd Wright Boathouse, for Buffalo State College and FLW Boathouse Inc, 2000. Higgins, Brian, From Rust Belt to Green Belt, Essential Elements for Buffalo’s Waterfront Revitalization, 1990. Joint Schools Construction Board, City of Buffalo, Reconstruction and New School Construction, Ongoing. New Millennium Group of Western New York, Inc., The Peace Bridge Gateway: Time for Greatness. July 20, 1999. Scajaquada Creek Advisory Committee, Scajaquada Creek Watershed Management Plan, 2002. Smith, Richard, New York State Assembly, Five Point Outer Harbor Transportation Plan, n.d. Southtowns Walleye Association, Lake Erie Access Report, 1990. Supermarket Management, Inc, Tops International Niagara Business Proposal, 1997.

108 Appendix A